Communication from the Commission to the European Parliament and the Council -  Eastern Partnership {SEC(2008) 2974}
Date: 2008-12-03
Institutions: European Commission
Subjects: Union for the Mediterranean, association agreement (EU), economic support, free-trade area, international cooperation

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 3.12.2008 
COM(2008) 823 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

Eastern Partnership 

{SEC(2008) 2974} 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

Eastern Partnership 

1. 

A CHANGING CONTEXT  

The  European  Union  has  a  vital  interest  in  seeing  stability,  better  governance  and 
economic development at its Eastern borders. At the same time, our partners in Eastern 
Europe and the Southern Caucasus all seek to intensify their relations with the EU. The 
Union's policy towards them must be proactive and unequivocal: the EU will give strong 
support  to  these  partners  in  their  efforts  to  come  closer  to  the  EU,  and  will  give  all 
necessary assistance  with  the  reforms  this entails, through a  specific Eastern dimension 
within the European Neighbourhood Policy (ENP)1.  

The  past  15  years  have  brought  sweeping  changes  on  the  EU's  eastern  flank.  Since  the 
conclusion of Partnership and Cooperation Agreements between the European Union and 
Eastern  Partners2,  successive  enlargements  have  brought  greater  geographic  proximity, 
while  reforms  supported  by  the  ENP  have  brought  these  countries  politically  and 
economically  closer  to  the  EU.  The  EU  has  a growing  responsibility  to  the  partners,  to 
help  them  address  the  political  and  economic  challenges  that  they  face  and  to  support 
their aspirations for closer ties.The time has come to make a step change in relations with 
these  partners,  without  prejudice  to  individual  countries'  aspirations  for  their  future 
relationship with the EU.  

The European Council of 19/20 June 2008 invited the Commission to prepare a proposal 
for  an  “Eastern  Partnership”  (EaP),  emphasising  the  need  for  a  differentiated  approach 
respecting  the  character  of  the  ENP  as  a  single  and  coherent  policy  framework.  The 
Extraordinary  European  Council  of  1st  September  2008  asked  for  this  work  to  be 
accelerated, responding to the need for a clearer signal of EU commitment following the 
conflict in Georgia and its broader repercussions.  

2. 

A MORE AMBITIOUS PARTNERSHIP  

The  present  Communication  sets  out  proposals  for  an  Eastern  Partnership.  The  EaP 
should  bring  a  lasting  political  message  of  EU  solidarity,  alongside  additional,  tangible 
support  for  their  democratic  and  market-oriented  reforms  and  the  consolidation  of  their 

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http://ec.europa.eu/world/enp/index_en.htm 
Eastern  partners  (or  “partners”)  for  the  purposes  of  this  Communication  are  the  Eastern  Europe 
and  South  Caucasus  countries  addressed  by  the  European  Neighbourhood  Policy:  Armenia, 
Azerbaijan, Belarus, Georgia, the Republic of Moldova and Ukraine. 

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statehood and territorial integrity. This serves the stability, security and prosperity of the 
EU, partners and indeed the entire continent. The Eastern Partnership will be pursued in 
parallel with the EU’s strategic partnership with Russia. 

The ENP has already been successful in forging closer relations between the EU and its 
neighbours.  The  EaP  should  go  further.  The  guiding  principle  should  be  to  offer  the 
maximum possible, taking into account political and economic realities and the state of 
reforms  of  the  partner  concerned,  bringing  visible  benefits  for  the  citizens  of  each 
country.  An  essential  component  of  the  EaP  will  be  a  commitment  from  the  EU  to 
accompany more intensively partners' individual reform efforts.  

It is important that this partnership should be pursued with the full political engagement 
of  EU  Member  States.  Active  parliamentary  contacts  and  exchanges  will  also  play  an 
important role.  

The  EaP  will  be  based  on  mutual  commitments  to  the  rule  of  law,  good  governance, 
respect  for  human  rights,  respect  for  and  protection  of  minorities,  and  the  principles  of 
the  market  economy  and  sustainable  development.  The  level  of  ambition  of  the  EU’s 
relationship  with  the  Eastern  Partners  will  take  into  account  the  extent  to  which  these 
values are reflected in national practices and policy implementation. 

Joint  ownership  is  essential,  and  both  sides  of  the  EaP  have  their  responsibilities.  Only 
with  strong  political  will  on  both  sides  will  the  EaP  achieve  its  objective  of  political 
association and economic integration. 

Work to achieve these goals should go ahead on a bilateral and a multilateral track: 

- The bilateral track will be designed to create a closer relationship between the EU and 
each of the partner countries to foster their stability and prosperity in our mutual interest. 
It will include the upgrading of contractual relations towards association agreements; the 
prospect  of  negotiations  to  put  in  place  deep  and  comprehensive  free  trade  areas  with 
each  country  and  greater  support  to  meet  the  related  requirements,  leading  to  the 
establishment  of  a  network  of  FTAs  that  can  grow  into  a  Neighbourhood  Economic 
Community  in  the  longer  term;  progressive  visa  liberalisation  in  a  secure  environment; 
deeper  co  operation  to  enhance  the  energy  security  of  the  partners  and  the  EU;  and 
support  for  economic  and  social  policies  designed  to  reduce  disparities  within  each 
partner  country  and  across  borders.  A  new  Comprehensive  Institution-Building  (CIB) 
programme  will  be  needed  to  improve  the  capacity  of  each  partner  to  undertake  the 
necessary reforms. 

– The multilateral track will provide a new framework where common challenges can be 
addressed.  Four  policy  platforms  are  proposed  below,  on  democracy,  good  governance 
and  stability;  economic  integration  and  convergence  with  EU  policies;  energy  security; 
and contacts between people. The multilateral track will also advance through a number 
of flagship initiatives supporting the aims  of  the  EaP  to  be  funded  through  multi-donor 
support, IFIs and the private sector. 

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3. 

DEEPER BILATERAL ENGAGEMENT 

The partners do not have identical objectives for their relationship with the EU, but they 
all share a common wish to deepen relations. The EU should be open to this and offer a 
higher level of political association, and progressive intensification of links in key areas.  

Building  on  previous  Commission  proposals  to  strengthen  the  ENP,  the  EaP  will 
reinforce  the  interaction  with  all  six  partners,  always  tailored  to  each  partner’s  specific 
situation and ambition. The level of Belarus’ participation in the EaP will depend on the 
overall development of EU — Belarus relations. 

3.1. 

New contractual relations 

Association  Agreements  (AAs)  can  provide  a  response  to  partners'  aspirations  for  a 
closer  relationship.  This  contractual  frame  for  a  stronger  engagement,  superseding  the 
current Partnership and Cooperation Agreements, will be negotiated with partners that are 
willing  and  able  to  take  on  the  resulting  far-reaching  commitments  with  the  EU.  These 
new agreements will create a strong political bond and promote further convergence by 
establishing  a  closer  link  to  EU  legislation  and  standards.  They  should  also  advance 
cooperation  on  Common  Foreign  and  Security  Policy  and  European  Security  and 
Defence Policy.  

The content of the agreements will vary and will be differentiated according to partners' 
objectives and capacities. The implementation of the AAs will be facilitated by successor 
documents to the current ENP Action Plans, incorporating where appropriate milestones 
and benchmarks and underpinning domestic reform agendas.  

A sufficient level of progress in terms of democracy, the rule of law and human rights, 
and  in  particular  evidence  that  the  electoral  legislative  framework  and  practice  are  in 
compliance with international standards, and full cooperation with the Council of Europe, 
OSCE/ODIHR  and  UN  human  rights  bodies  will  be  a  precondition  for  starting 
negotiations and for deepening relations thereafter. 

To  assist  partners  in  meeting  these  conditions  and  to  help  them  meet  the  commitments 
stemming from the AAs, a Comprehensive Institution-Building programme (CIB) for 
improving administrative capacity in all relevant sectors of cooperation will be developed 
with  each  partner  co-financed,  through  the  European  Neighbourhood  and  Partnership 
Instrument (ENPI)3. 

3.2. 

Gradual integration in the EU economy 

Open markets and economic integration are essential to the development of the partners 
and  to  their  confidence  in  a  growing  partnership  with  the  EU.  The  AAs  will  therefore 

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Regulation  (EC)  No  1638/2006  of  the  European  Parliament  and  of  the  Council  of  24  October 
2006. 

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provide for mutual market access, which will create new opportunities on both sides and 
underpin political stabilisation.  

The  AAs  will  include  the  goal  of  establishing  a  deep  and  comprehensive  free  trade 
area  (DCFTA)  with  each  of  the  partner  countries4.  These  DCFTAs  will  be  established 
only once these countries have joined the WTO5. They will cover substantially all trade, 
including  energy,  and  aim  at  the  highest  possible  degree  of  liberalisation6  (with  the 
asymmetry in the pace of liberalisation appropriate to the partners’ economies). They will 
contain legally binding commitments on regulatory approximation in trade-related areas 
and  will  thus  contribute  to  the  modernisation  of  the  economies  of  the  partner  countries 
and  anchor  the  necessary  economic  reforms.  They  will  create  real  perspectives  for 
enhanced movement of goods (this could include Agreements on Conformity Assessment 
and  Acceptance  of  Industrial  Products  and  the  recognition  of  equivalence  achieved  by 
partners  related  to  sanitary  and  phytosanitary  standards  for  agricultural  and  food 
products),  capital  and  the  supply  of  services  (inter  alia  through  provisions  on  mutual 
recognition of legal and institutional frameworks in certain sectors, better conditions for 
establishment of companies, and more opportunities for persons to be temporarily present 
in the territory of the parties for business purposes), to be achieved over the long term.  

Some partners may not be ready to negotiate and enter into the commitments that such a 
goal  entails  at  the  time  when  the  AAs  are  concluded.  Nevertheless,  the  objective  of 
establishing a DCFTA will form an integral part of the AAs, with a commitment to start 
negotiations  on  a  WTO-compatible  deep  and  comprehensive  free  trade  area  as  soon  as 
the partner country is sufficiently advanced in its preparation to negotiate, implement and 
sustain  the  effects  of  a  far-reaching  liberalisation.  The  Commission’s  ENP  Progress 
Reports  and  specific  feasibility  studies  will contribute  to  this  assessment.  The  CIB  will 
assist  partners  to  prepare  for  the  negotiation  and  implementation  of  DCFTA-
commitments.  

A longer-term goal would be the creation of a network of bilateral agreements among the 
partners,  possibly  leading  to  the  creation  of  a  Neighbourhood  Economic  Community. 
This is discussed further in section 4. 

In parallel, sectoral measures should be pursued to facilitate market access for partners. 
In  the  agriculture  sector,  agreements  on  Geographical  Indications  will  be  negotiated 
with  partners7,  and  an  Agricultural  Dialogue  could  be  envisaged,  where  needed,  to 

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The  Commission  has  outlined  the  nature  and  the  advantages  of  a  deep  and  comprehensive  Free 
Trade  Agreement  in  its  Communications  on  “strengthening  the  ENP”  of  4  December  2006  - 
COM(2006)726  -  and  on  “a  strong  ENP”  of  5  December  2007  -  COM(2007)  774  -  and,  in 
particular,  in  its  non-paper  on  the  “ENP  —  a  path  towards  further  economic  integration”,  see 
http://ec.europa.eu/world/enp/pdf/non-paper_economic-integration_en.pdf. 
Currently only Azerbaijan and Belarus have not yet concluded their WTO accession negotiations.  
This includes limiting the number of agricultural products excluded from full liberalisation, cf. “A 
strong ENP”, 5 December 2007 - COM(2007)774.  
Negotiations with Ukraine and Georgia are ongoing, and a proposal to this end has been made to 
Moldova. The resulting agreements will be included subsequently in the DCFTA agreements. 

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improve  mutual  understanding  of  EU  and  partners’  agricultural  policies  and  to  work 
towards harmonisation. Intellectual Property protection could be strengthened through 
an enhanced dialogue and by validation agreements between partners and the European 
Patent Office. With a view to developing economic activities in an appropriate regulatory 
framework, good governance in the tax area will be promoted. 

3.3.  Mobility and security  

Partners  emphasise  that  mobility  is  a  key  litmus  test  for  engagement  with  the  EU  and 
promoting  mobility  in  a  secure  environment8  should  be  a  priority  for  the  EaP.  The  EU 
should  promote  mobility  of  citizens  with  those  partners  that  are  willing  to  commit  to 
ensure that the conditions for well managed and secure mobility are in place.  

The EU should offer partners "Mobility and Security" pacts that would include both the 
mobility aspect and the conditions required to ensure the secure environment. Key policy 
areas  that  would  be  covered  by  such  pacts  would  include  fighting  illegal  migration, 
upgrading the asylum systems to EU standards, setting up integrated border management 
structures  aligned  to  the  EU  acquis,  as  well  as  enhancing  the  abilities  of  police  and 
judiciary  in  particular  in  the  fight  against  corruption  and  organised  crime.  The  pacts 
would improve  the  mobility  of  people, while contributing to the partners’ own  stability 
and security, as well as to the security of the EU borders. They will be tailor-made on a 
country-by-country-basis. 

The mobility side of the pacts would reflect the recent Commission Communication on 
Strengthening the Global Approach to Migration and the European Pact on Immigration 
and Asylum, endorsed by the European Council in October 2008. The main tool would be 
the  Mobility  Partnership,  as  identified  in  the  framework  of  the  Global  Approach  to 
Migration  and  currently  tested  with  a  number  of  countries,  including  the  Republic  of 
Moldova  (hereafter  referred  to as  “Moldova”).  Developments  in  the  area  of  visa  policy 
will be an integral part of this wider concept. 

Visa policy would follow a phased approach, leading to visa liberalisation under specific 
conditions  and  with  accompanying  measures,  including  financial  assistance  for  our 
partners.  

In addition to proposals that have been tabled previously, in the framework of the pacts 
the EU should:  

–  As  a  first  step,  initiate  talks  on  visa  facilitation  with  partners  without  such 
agreements.  Visa  facilitation  agreements  would  be  accompanied  by  readmission 
agreements  and,  where  necessary,  by  technical  assistance  under  overall  assistance 
budgets to help partners meet the obligations stemming from these agreements;  

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COM(2007) 774. 

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–  As  a  second  step,  revise  these  agreements  to  introduce  additional  facilitations,  e.g 

waiving the visa fee for all citizens9.  

–  Develop a coordinated plan to improve Member States’ consular coverage in the 
region  by  encouraging  Member  States  to  make  wider  use  of  representation  and 
through financial support for the establishment of Common Visa Application Centres, 
based on the successful experience in Chisinau;  

–  Once visa facilitation and readmission agreements are effectively implemented, open 
dialogues  on  visa-free  travel  with  all  cooperating  partners10.  Dialogues  would 
establish  roadmaps  leading  to  visa  waiver,  dealing  with  four  main  blocks  of  issues: 
document  security;  fight  against  irregular  migration,  including  readmission;  public 
order issues; and external relation issues, including human rights of migrants and other 
vulnerable groups. 

–  The Commission will launch a study to quantify the costs and benefits for the EU and 
for partners with regard to labour mobility and possible labour-matching measures.11 
Depending on the results of the study, the EU would pursue a targeted opening of the 
EU  labour  market  to  citizens  of  partners,  as  well  as  measures  to  facilitate  circular 
migration, within the framework of Mobility Partnerships. 

–  To ensure that mobility takes place in a secure environment, the EU should also help 
its  partners  implement  the  political  and  legislative  commitments  they  have  already 
undertaken in the ENP framework in the justice and law enforcement areas. This could 
be  done  through  reinforced  technical  cooperation  and  financial  assistance,  where  the 
role of twinning projects and TAIEX should be substantially enhanced.  

In particular, in the framework of the pacts the EU should: 

–  Help  partners  establish  high-standard  border  management  procedures  at  the 

external borders; 

–  Assist  them  in  setting  up  an  effective  data  protection  regime  which  would  allow 
them  to  share  operational  information  with  Europol  and  Eurojust  in  the  context  of 
bilateral agreements; 

–  Grant partners special status in relevant EU agencies, where feasible; 

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Extrapolating from statistics for 2007, assuming that the number of applications does not change, 
the annual cost of a visa fee waiver for all six partners would amount to some € 75 million in total 
for  all  Member  States  belonging  to  the  Schengen  zone.  Member  States  not  belonging  to  the 
Schengen zone would also be invited to consider waiving their visa fees. 
The  September  2008  EU-Ukraine  Summit  decided  to  launch  a  dialogue  on  a  mutual  visa-free 
travel regime as a long-term perspective. 
The  study  will  build  on  the  forthcoming  Commission  communication  ‘New  skills  for  new  jobs’ 
and would complement it. 

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–  Support them in adopting and effectively implementing national strategies in line with 
EU  standards  to  fight  vigorously  against  organised  crime,  trafficking  and  high-
level corruption, and to prevent money laundering and financing of terrorism, which 
need to be tackled effectively at an early stage. 

3.4. 

Energy security 

The  EaP  will  aim  to  strengthen  the  energy  security  of  the  EU  and  of  the  partners  with 
regard to long-term energy supply and transit12. In addition to multilateral initiatives (see 
section  4.3.),  the  Commission  proposes,  taking  account  of  the  Second  Strategic  Energy 
Review13, a number of bilateral measures.  

–  Inclusion  of  “Energy  interdependence”  provisions  in  the  AAs,  in  coherence  with, 
inter  alia,  EU  trade,  competition  and  energy  policies,  to  be  negotiated  with  partners, 
taking account, where appropriate, of existing Memoranda of Understanding14;  

–  Swift  completion  of  negotiations  on  Ukraine’s  and  Moldova’s  membership  in  the 
Energy  Community.  When  appropriate,  an  extension  of  observership  to  other 
partners should be considered; 

–  Conclusion  of  Memoranda  of  Understanding  on  energy  issues  with  Moldova, 
Georgia and Armenia as additional flexible instruments, when needed. They should 
contain  measures  to  support  and  monitor  the  security  of  energy  supply  and  transit, 
including for key energy infrastructures. In the case of Armenia, the MoU would also 
address the closure of the Medzamor Nuclear Power Plant;  

–  Enhanced support for the full integration of Ukraine’s energy market with that of the 
EU,  recognising  the  importance  of  a  satisfactory  assessment  of  the  level  of  nuclear 
safety in all Ukraine’s operating nuclear power plants. Rehabilitation of the Ukrainian 
gas  and  oil  transit  network  is  a  priority,  including  through  improvement  of  the 
monitoring of gas and oil flows into Ukraine. A pledging and investment conference 
aiming  to  assist  Ukraine  in  the  rehabilitation  and  development  of  its  gas  transit 
network will be held in 2009; 

–  Enhanced  political  engagement  with  Azerbaijan  as  the  only  EaP  hydrocarbon 
exporting partner to the EU, based on Azerbaijan’s gradual convergence with the EU 
energy market and infrastructure integration;  

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The  closeness  of  main  hydrocarbon  transit  pipelines  to  zones  of  conflict  remains  of  concern. 
Instability in the Southern Caucasus can also threaten the region’s energy security. A very large 
Georgian  hydroelectricity  plant  lies  at  the  fringes  of  Abkhazia.  Georgia  trades  electricity  with 
Armenia  and  Azerbaijan.  Gas  supplies  from  Russia  reach  Armenia  via  Georgia.  The  main  gas 
pipeline  from  the  Russian  Federation  to  the  Balkans  passes  through  the  Transnistrian  region  of 
Moldova.  These  factors  impact  on  investor  confidence,  on  the  prospects  of  sustainable  energy 
transit through the Caucasus and on the EU’s strategy for securing new suppliers in Central Asia. 
An EU Energy Security and Solidarity Action Plan - COM(2008) 744. 
The MoUs mentioned in this Communication are not legally binding instruments. 

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–  Finalisation of a European Commission-Belarus declaration on energy, as a basis for 
further  development  of  energy  cooperation.  This  cooperation  could  cover,  inter  alia, 
hydrocarbon transit and energy sector reforms;  

–  Encouragement  to  all  partners  to  participate  in  the  Intelligent  Energy  Europe 

Programme. 

3.5. 

Supporting economic and social development  

Some  partners  have  structural  problems  stemming  from  sharp  economic  and  social 
disparities  between  their  regions  and  population  groups,  which  are  often  divided  by 
historical,  cultural,  ethnic  and  religious  differences.  All  of  them  also  seek  economic 
convergence with the EU. To address these challenges, EaP partner countries should be 
able to draw on the experience and mechanisms of EU economic and social policies. The 
Commission proposes: 

–  Memoranda  of  Understanding  on  regional  policy  with  partners,  as  a  basis  for 
dialogue. EU expertise and networks can assist in building up administrative capacity 
at national and local level and support national development plans.  

–  With  additional  funding  (see  section  5),  cooperation  with  partners  on  pilot  regional 
development  programmes  addressing  local  needs  for  infrastructure,  human  capital, 
and small and medium sized enterprises (SMEs), modelled on EU cohesion policy. 

–  Direct  co-operation  between  the  regions  of  the  EU  and  of  the  partner  countries, 
including participation of relevant partners in existing transnational programmes in 
South-Eastern, Central and Northern Europe. 

–  Extending  ENPI-funded  cross-border  co-operation,  currently  implemented  at  the 

external borders of the EU, to the borders between partners. 

4. 

A NEW FRAMEWORK FOR MULTILATERAL CO-OPERATION 

The  EaP  will  add  a  new  multilateral  framework  to  the  EU’s  relations  with  its  partners. 
This  will  support  progress  in  partners’  bilateral  relations  with  the  EU,  which  will 
continue to be governed by the principle of differentiation, developing according to the 
ambitions  and  capacities  of  each.  It  will  provide  a  forum  to  share  information  and 
experience on partners’ steps towards transition, reform and modernisation15 and give the 
EU  an  additional  instrument  to  accompany  these  processes.  It  will  facilitate  the 
development  of  common  positions  and  joint  activities.  The  multilateral  framework  will 
foster links among the partners themselves and will be a natural forum for discussion on 
further developments of the EaP.  

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the  Commission  non-paper  on  “ENP  —  Thematic  Dimension”  of  spring  2007, 

See 
http://ec.europa.eu/world/enp/pdf/non-paper_thematic-dimension_en.pdf . 

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Crucially, legislative and regulatory convergence is essential to the partners’ progress in 
coming  closer  to  the  EU.  The  proposed  multilateral  framework  will  provide  the  setting 
for  the  systematic  organisation  of  dedicated  sessions  involving  the  relevant  European 
Commission  services  and,  where  appropriate,  Member  State  experts,  devoted  to  the 
presentation  and  explanation  of  the  EU  legislation  and  standards  as  well  as  its 
comparison  with  national  policy  and  legislation.  In  this  way  the  EaP  will  initiate  a 
structured approximation process, supported by the CIB16. 

There  is  substantial  complementarity  between  the  EaP  and  the  Black  Sea  Synergy  and 
other  regional  and  international  initiatives.  This  is  discussed  in  the  Commission  staff 
working paper accompanying this Communication.  

4.1. 

Operational structure 

The Commission proposes to organise the multilateral EaP framework at four levels: 

–  Meetings of EaP Heads of State or Government should be held every two years.  

–  The  EaP  should  also  advance  through  annual  spring  meetings  of  Ministers  of 
Foreign  Affairs  from  the  EU  and  from  the  Eastern  partners,  including  Belarus  as 
appropriate,  attached  to  a  General  Affairs  and  External  Relations  Council.  Foreign 
Ministers  will  review  progress  and  provide  policy  guidance.  Work  in  the  individual 
sectors can be enhanced through sector-specific ministerial conferences. 

–  At the third level, four thematic platforms should be established, according to the main 
areas  of  cooperation  (see  section  4.2).  Each  platform  will  adopt  a  set  of  realistic, 
periodically updated, core objectives — with a corresponding programme of work — 
and will review progress. Meetings would be held at least twice a year at the level of 
senior  officials  engaged  in  reform  work  in  the  relevant  policy  areas.  Member  States 
with an experience of transition have a particular contribution to make to the process. 
The  platforms  will  report  to  the  annual  meetings  of  Foreign  Ministers.  The 
Commission  will  prepare  the  meeting  agendas  in  close  cooperation  with  the  EU 
Presidency and partners and will chair the meetings. The work of the platforms may 
occasionally be promoted through sector-specific ministerial meetings. 

–  At  the  fourth  level,  there  should  be  panels  to  support  the  work  of  the  thematic 
platforms  in  specific  areas.  Their  formats  and  participants  will  be  determined 
according to need. 

For  its  part,  the  Commission  will  review  its  internal  structures  to  ensure  the  necessary 
coordination for a successful implementation of the EaP. 

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EU  legislation  and  standards  will  continue  to  be  presented  and  discussed  also  in  the  frame  of 
bilateral thematic subcommittees. 

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4.2. 

Thematic platforms 

Democracy, good governance and stability 

While their individual stages of reform differ, partner countries face similar challenges in 
developing stable democratic institutions and effective state structures at the service of 
their  citizens  and  in  complying  with  commitments  stemming  from  their  Council  of 
Europe and OSCE membership. Their ongoing reforms also require stronger participation 
of civil society to enhance oversight of public services and strengthen public confidence 
in them. Multilateral activities could thus include governance peer reviews and exchanges 
of best practices to address issues such as electoral standards, regulation of the media or 
combating corruption.  

The  EaP  should  also  promote  stability  and  multilateral  confidence-building  with  the 
goal  of  consolidating  the  sovereignty  and  territorial  integrity  of  partners.  It  should 
advance  political  dialogue  in  fields  of  common  interest  and  cover  specific  CFSP  and 
ESDP  issues,  including  the  participation  of  partner  countries  in  ESDP  missions  and 
exercises.  Early-warning  arrangements  should  be  enhanced,  with  particular  focus  on 
conflict areas.  

Economic integration and convergence with EU policies  

Partners can draw benefits from coordinating their efforts towards economic integration 
and regulatory convergence with the EU. As a long-term goal, the EU should encourage 
these  countries  to  establish  a  network  of  DCFTAs  among  themselves  or  regional  free-
trade agreements based on the bilateral commitments undertaken in the DCFTAs with the 
EU.  This  would  strongly  enhance  intra-regional  trade  and  economic  integration  and 
complement the countries' efforts to better integrate with the EU economy. An important 
element contributing to further economic integration would be the diagonal cumulation of 
origin. Another key action is to support the partner countries' customs reforms with the 
objective of improving capacity in line with international and EU standards. This process 
should  be  specifically  geared  to  their  status  as  transition  countries  and  accompanied  by 
appropriate flanking policies. As a further step, the EU and its partners may reflect on a 
trade  approach  establishing  a  Neighbourhood  Economic 
broader 
Community17, taking inspiration from the European Economic Area18 where appropriate. 
Such  a  Community  would  in  the  longer  term  offer  full  access  to  the  single  market.  It 
would require the partners to develop the capacity of their economies to be able to fully 
withstand  the  competitive  pressures  of  the  single  market  and  to  demonstrate  not  only  a 
willingness  to  adopt  all  relevant  elements  of  the  EU  acquis,  but  also  a  capacity  to 
implement  them,  with  comparable  standards  and  practices.  Substantially  increased 
technical assistance and funding will be needed to achieve this objective. 

regional 

17 

18 

EN 

The Commission services outlined the scope of required efforts in a non-paper entitled “ENP – a 
2007”, 
path 
http://ec.europa.eu/world/enp/pdf/non-paper_economic-integration_en.pdf . 
Iceland, Liechtenstein, Norway and EU Member States. 

integration” 

economic 

towards 

further 

spring 

of 

11 

   EN 

                                                 
Private sector involvement will be sought, with a view to improving the business climate 
in the partner countries. Efforts will also focus on enhancing employment, decent work, 
social  cohesion  and  equal  opportunities,  aiming  at  a  positive  impact  of  economic 
integration.  

Multilateral cooperation should be extended to environment policy and climate change, 
to  address  issues  such  as  multilateral  conventions,  strategic  planning,  environmental 
governance,  enforcement,  specific  environment  themes,  the  financing  of  environment 
investments  in  a  regional  context,  climate  change  mitigation  and  adaptation,  the 
involvement  of  partners  in  international  discussions  on  future  climate  action  and 
experience  sharing  on  emissions  trading.  The  EaP  multilateral  process  should  also 
facilitate the interconnection of partners’ transport and telecommunications networks — 
among  themselves  and  with  the  EU  —  and  the  harmonisation  of  the  regulatory 
environment.  Strong  and  diversified  regional  transport  cooperation  already  exists19;  the 
EaP could promote  additional  technical talks on selected  topics such  as aviation safety, 
inland  navigation  and  infrastructure  projects,  taking  due  account  of  on-going  talks  in 
other  regions.  The  deployment  of  advanced  research  and  communications  networks 
should also be promoted.  

Energy security  

The energy security of the EU and partners is closely linked and the EaP Energy Security 
platform should concentrate on measures of mutual interest:  

The  EaP  will  aim  to  develop  and  implement  mutual  energy  support  and  security 
mechanisms, including early warning mechanisms and joint security actions. One of the 
objectives will be to strengthen contacts on energy security and to enhance energy crisis 
preparedness.  An  energy  security  panel  will  be  established  to  support  this  work.  This 
panel  may  consider  formalising partners' interaction, on an ad hoc  basis, with the EU’s 
NESCO  (Network  of  Energy  Security  Correspondents),  and  would  build  on  existing 
arrangements with the Gas Coordination Group and the Oil Supply Group, and bearing in 
mind the work being undertaken in other fora, including the Energy Community, where 
appropriate. 

The  EaP  will  furthermore  accelerate  the  harmonisation  of  partners’  energy  policies 
and legislation with EU practice and acquis, inter alia, in the area of electricity, gas, oil, 
renewables,  and  energy  efficiency.  Intensified  cooperation  with  key  stakeholders 
(national administrations, regulators, agencies) will support this process. 

The  creation  in  the  medium  term  of  a  mutually  beneficial  interconnected  and 
diversified  energy  market  between  the  EU  and  partners  will  also  be  pursued.  This 
requires the development of an Energy Infrastructure Action Plan for the EaP, taking into 
account the Second Strategic Energy Review and the EU Priority Interconnection Plan20. 
Partners’  storage  capacities  for  oil  and  gas  should  also  be  improved,  including  through 

19 
20 

Notably in the frame of TRACECA. 
COM(2006) 846 final/2, 23.2.2007. 

EN 

12 

   EN 

                                                 
the  encouragement  of  joint  storage  arrangements.  Concerning  key  infrastructures  that 
face heightened non-commercial risks, the development of public-private partnerships 
bringing  together  the  EU  with  the  EaP  partner  countries  may  also  become  increasingly 
important. 

Energy security of the EU and partners requires a strong diversification of supply and 
transit  routes.  This  could  be  better  achieved  by  closer  involvement  of  third  countries 
including  Central  Asia  countries.  Therefore,  the  EaP  should  contribute  towards  the 
ongoing strengthening of the Baku Process as a genuine energy partnership, with a full 
participation of countries of Central Asia as a key energy producing region, and including 
through the development of the Southern corridor including the Transcaspian. 

Contacts between people  

Interaction between EU and partner countries’ citizens, in particular young people, needs 
to be recognised as a promoter and monitor of change and will be encouraged. The EU 
has specifically recognised the value of cultural cooperation and inter-cultural dialogue 
as an integral part of all external policies and has underlined the importance of cultural 
cooperation in addressing political processes and challenges21. Cooperation can also build 
on a number of popular Community and external assistance programmes, notably in the 
area of education, including language learning, youth and research. The development of 
the  Information  Society  and  the  role  of  media  in  facilitating  contacts  between  people 
must also be supported. 

4.3. 

Flagship initiatives 

The  objectives  of  the  EaP  may  also  be  advanced  through  selected  flagship  initiatives 
providing visibility and focus to multilateral cooperation. These initiatives should seek to 
mobilise  multi-donor  support,  funding  from  different  IFIs  and  investment  from  the 
private sector. The Commission  considers that they could include an Integrated Border 
Management  Programme;  an  SME  Facility;  promotion  of  Regional  electricity  markets, 
energy efficiency and renewable energy sources;22 development  of  the Southern  energy 
corridor;  and  cooperation  on  Prevention  of,  preparedness  for,  and  response  to  natural 
and man-made disasters.  

Potential subjects for the work of the thematic platforms and panels and a description of 
the proposed flagship initiatives are set out in the Commission staff working paper. 

4.4. 

Participation 

Beyond  government  representatives  and  the  European  Commission,  work  will  involve 
other  EU  institutions,  international  organisations  (such  as  the  OSCE  and  CoE), 
local 
Institutions,  parliaments,  business 
International  Financial 

representatives, 

21 
22 

EU Presidency Conclusions of the European Council of June 2008, paragraph 78. 
Work in this area has already begun under the INOGATE Programme.  

EN 

13 

   EN 

                                                 
authorities,  and  a  wide  range  of  stakeholders  in  the  fields  covered  by  the  thematic 
platforms.  

Particular attention should be paid to the involvement of civil society. The Commission 
proposes to support the further development of Civil Society Organisations (CSOs) and 
to establish an EaP Civil Society Forum to promote contacts among CSOs and facilitate 
their dialogue with public authorities. 

Third  countries  could  be  involved  in  the  work  of  a  thematic  platform,  a  panel  or  an 
initiative,  on  a  case  by  case  basis  and  if  there  is  agreement  that  common  interests  in  a 
topic, geographical proximity or existing economic links would make this beneficial. 

The Commission would welcome any initiative by the European Parliament to make the 
“EuroNest” parliamentary cooperation that it has developed an integral part of the EaP. 
In addition, a Parliamentary Troika comprising the European Parliament, the OSCE and 
the Council of Europe Parliamentary Assemblies could underpin the multilateral aspects 
of the EaP. 

The  Commission  invites  the  participation  of  the  Committee  of  the  Regions  and  the 
European  Economic  and  Social  Committee,  particularly  in  the  work  under  thematic 
platforms  on  Democracy,  good  governance  and  stability  and  on  Contacts  between 
people.  The  Commission  further  invites  the  Committee  of  the  Regions  to  establish  an 
Eastern  Europe  and  South  Caucasus  Local  and  Regional  Assembly  and  the  European 
Economic and Social Committee to participate in the Civil Society Forum. 

5. 

RESOURCES  

One of the clearest signals the EU can give of a concrete commitment to its partners is to 
bring  funding  levels  in  line  with  the  Partnership’s  level  of  political  ambition. 
Substantially increased financial resources are required to achieve the objectives set out 
in this proposal. 

These funds will be used to advance the EaP reform agenda through the implementation 
of CIB programmes which will provide advice and training (e.g., through twinning and 
TAIEX)  to  public  administrations  as  well  as  equipment  and  specialised  infrastructure 
(e.g., laboratories) needed for their operation. The increased resources will also finance 
the operations of the platforms and support a number of flagship initiatives. Finally, they 
will support the establishment of partners’ regional policies fostering stability through the 
promotion of internal cohesion and the reduction of socio-economic disparities.  

Current  ENPI  funding  for  the  partners  amounts  to  some  €  450  million  in  2008.  The 
Commission intends to propose progressively raising this amount to reach approximately 
€  785  million  in  the  year  2013.  This  will  re quire  supplementing  the  current  ENPI 
envelope with € 350 million of fresh funds  on top of the planned resources for 2010-13. 
In addition, in the framework of the budget review, consideration will be given to further 

EN 

14 

   EN 

raising the level of assistance to reflect the level of ambition of the policy towards these 
partners.  

In order to address the most immediate needs the ENPI Regional Programme East will be 
re-focussed  to  sustain  the  EaP  multilateral  dimension.  Funds  available  within  the  2009 
envelope  can  be  used  to  kick-start  urgent  initiatives  and  approximately  €  250  million  
under the current ENPI envelope can be re-programmed for the period 2010-13. 

This  combination  of  fresh  and  reprogrammed  funds  will  bring  the  total  amount  of 
resources  devoted  to  the  new  initiatives  identified  in  this  Communication  to  €  600 
million. 

Beyond  increasing  Community  grant  assistance,  a  vigorous  EaP  will  require  practical 
measures to ensure effective delivery and improved donor coordination, and to leverage 
more investment funding, notably through the EIB and EBRD. The Mid-term review of 
the  external  mandate  of  the  EIB  will  provide  an  opportunity  to  consider  raising  the 
indicative  ceiling  for  the  Eastern  partners  and  widening  its  scope.  For  major 
infrastructure  projects,  support  for  public/private  investments  through  the  coverage  of 
non-commercial  risks  should  be  considered.  The  Neighbourhood  Investment  Facility 
(NIF) can be used to channel EU grant funds for such projects and the Commission calls 
on  Member  States  to  contribute  financially  to  the  EaP  including  through  increased 
contributions  to  the  NIF.  Further  information  concerning  these  issues  is  found  in  the 
Commission staff working document accompanying this Communication. 

The  implementation  of  the  EaP  will  also  necessitate  the  allocation  of  adequate  human 
resources within the relevant Commission services. In particular, the EC Delegations in 
the partner countries need to be reinforced. 

6. 

CONCLUSIONS 

The  rationale  of  the  ENP  –  that  the  Union  has  a  vital  interest  in  promoting  better 
governance  and  economic  development  through  a  determined  engagement  in  its 
neighbourhood  –  is  more  valid  than  ever.  Deepening  our  relations  with  the  partners 
through  the  Eastern  Partnership  is  thus  both  a  strategic  imperative  and  a  political 
investment for the EU, which will pay dividends to Europe's citizens.  

The  EaP  will  contribute  to  energizing  reforms,  integrating  markets  and  societies, 
projecting stability and counteracting the risk of the emergence of new borderlines across 
our continent. The Commission calls on the Council and European Parliament to provide 
strong political and financial support to the EaP.  

The Commission proposes that the Eastern Partnership be launched at a Summit Meeting 
in the spring of  2009, involving the Heads of State or Government of all EU Member 
States  and  partners.  This  “Eastern  Partnership  Summit”  will  adopt  a  Political 
Declaration  establishing  the  Partnership,  spelling  out  its  main  goals  and  principles  and 
determining the general features of the ensuing cooperation process. 

EN 

15 

   EN 

LEGISLATIVE FINANCIAL STATEMENT 

1. 

NAME OF THE PROPOSAL: 

Eastern Partnership (EaP) 

2. 

ABM / ABB FRAMEWORK 

Chapter 19.08 – European Neighbourhood Policy and Relations with Russia  

3. 

3.1 

BUDGET LINES 

Budget  lines  (operational  lines  and  related  technical  and  administrative 
assistance lines (ex- B.A lines)) including headings: 

Heading 4 – External relations  

BL 19.01.04.02 

ENPI Expenditures on Administrative Management 

BL. 19.08.01.03 

ENP Financial co-operation with Eastern Europe 

3.2 

Duration of the action and of the financial impact: 

The EaP is a complement to the European Neighbourhood Policy. The financial impact 
covered  by  this  fiche  concerns  the  period  2009-13,  in  addition  to  already  foreseen 
allocations for the period 2007-2013. 

3.3 

Budgetary characteristics: 

Budget line 

Type of expenditure 

New 

EFTA 
contribution 

Contributions 
from applicant 
countries 

Heading in 
financial 
perspective 

19.01.04.02 

19.08.01.03 

Non-
comp 

Non-
comp 

Non-
diff 

NO 

NO 

Diff 

NO 

NO 

NO 

NO 

No 4 

No 4 

EN 

16 

   EN 

 
4. 

4.1 

SUMMARY OF RESOURCES 

Financial Resources4.1.1  Summary  of  commitment  appropriations  (CA) 
and payment appropriations (PA), EUR mn (to 3 decimal places) 

Expenditure type 

Section 
no. 

2009 

2010 

2011 

2012 

2013 

Total 

Operational expenditure (Budget Line 19.08.01.03) 

Commitment 
Appropriations (CA) 

8.1 

Payment Appropriations 
(PA) 

a 

(97%) 

b23 

0 

0 

24.25 

51.41 

109.61 

154.23 

339.5 

4.25 

14.41 

46.61 

85.23 

150.5 

Administrative expenditure within reference amount (Budget Line 19.01.04.02) 

Technical & 
administrative assistance 
(NDA)24 

8.2.4 

TOTAL REFERENCE AMOUNT 

Commitment 
Appropriations 

Payment Appropriations 

c 

(3%) 

a+c 

b+c 

0 

0.75 

1.59 

3.9 

4.77 

10.5 

0 

0 

25 

5 

53 

16 

113 

159 

350 

50 

90 

161 

Administrative expenditure not included in reference amount 

Human resources and 
associated expenditure 
(NDA) 

Administrative costs, 
other than human 
resources and associated 
costs, not included in 
reference amount (NDA) 

8.2.5 

d 

0 

2.35 

2.838 

2.838 

2.838 

10.864 

8.2.6 

e 

0 

0.193 

0.229 

0.229 

0.229 

0.880 

Total indicative financial cost of intervention 

TOTAL CA including 
cost of Human Resources 

TOTAL PA including 
cost of Human Resources 

a+c+
d+e 

b+c+
d+e 

0 

0 

27.543 

56.067 

116.067 

162.067 

361.744 

7.543 

19.067 

56.067 

93.067 

172.744 

23 
24 

Based on calculations of the Payment Appropriations of the ENPI Instrument in 2006. 
Expenditure on Administrative Management (BA-line) includes inter alia expenditure on Contract 
staff  in  Delegations,  as  well  as  studies,  meetings  of  experts  and  information  and  publications 
directly linked to the achievement of the objective of the programme. 

EN 

17 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
                                                 
4.1.2  Compatibility with Financial Programming 

(cid:133) 

Proposal is compatible with existing financial programming. 

Proposal will entail reprogramming of the relevant heading in the financial 

X 
perspective (use of the margin). 

Proposal may require application of the provisions of the Inter-institutional 

(cid:133) 
Agreement25 (i.e. flexibility instrument). 

The additional EUR 350 mn are to be allocated from the margin of Heading 4 
under which € 998 mn is available accordi ng to the latest financial programming 
(PDB 2009).  

4.1.3 

Financial impact on Revenue 

X 

Proposal has no financial implications on revenue 

(cid:133) 

Proposal has financial impact – the effect on revenue is as follows: 

4.2 

Human Resources FTE (including officials, temporary and external staff) – 
see detail under point 8.2.1 and 8.2.2. 

Annual requirements 

2009 

2010 

2011 

2012 

2013 
and 
later 

Total number of human 
resources required per 
year26 

0 

18 

27 

40 

50 

25 
26 

See points 19 and 24 of the Inter-institutional agreement. 
This  includes  both  Officials  for  HQ  as  well  as  Contract  Staff  for  financial  assistance  in  the  6 
Delegations; For a detailed breakdown see 8.2.1 ‘Number and type of Human Resources’. 

EN 

18 

   EN 

 
 
 
 
 
 
 
                                                 
5. 

CHARACTERISTICS AND OBJECTIVES 

5.1 

Need to be met in the short or long term 

This Communication presents the Commission’s proposals for a deeper EU engagement 
with  Eastern  European  neighbours27,  which  will  require  the  mobilisation  of  additional 
Community resources. 

The  Commission  intends  to  gradually  raise  the  ENPI  funding  for  the  Eastern  partners 
from  €  450  million  in  2008  to  approximately  €  785  million  in  2013.  This  will  require 
supplementing the current ENPI envelope with € 350 mn in addition to the appropriations 
already programmed28 for the period 2010-13. This amount will be taken from the margin 
under the ceiling of Heading 4 under which €  998 million are available for the period.  

In  addition,  in  the  framework  of  the  budget  review,  consideration  will  also  be  given  to 
further raising the level of assistance to reflect the level of ambition of the policy towards 
the partners.  

5.2 

Value-added  of  Community  involvement  and  coherence  of  the  proposal 
with other financial instruments and possible synergy 

The proposal rests on sharing with our Eastern European neighbours the experiences of 
European integration and progressively involving them into EU policies. The ENPI legal 
framework  is  well  placed  to  sustain  the  co-operation  measures  that  will  be  part  of  the 
EaP.  However,  to  do  so  while  maintaining  the  planned  level  of  assistance  for  other 
(Mediterranean)  ENP  countries,  will  require  increasing  the  financial  resources  of  the 
instrument  making  use  of  the  margin  of  Heading  4.  The  proposed  increase  should  be 
implementable without formally revising the ENPI regulation as it remains within the 5% 
flexibility authorised by point 37 of the IIA on the Financial perspective29.  

Other  financial  instruments  will  also  contribute  to  the  implementation  of  the  EaP  with 
specific actions falling within their scope of operations. 

5.3 

Objectives,  expected  results  and  related  indicators  of  the  proposal  in  the 
context of the ABM framework 

Objectives 

27 
28 
29 

Armenia, Azerbaijan, Belarus, Georgia, Moldova and Ukraine. 
These figures do not include the Commission's recent pledge for assistance to Georgia.  
The  assumption  is  that  the  extra  resources  mobilized  to  address  crisis  situations  (such  as  in  the 
Occupied  Palestinian  Territory  and  Georgia)  are  not  counted  against  the  5%  as  they  are  “a 
response  to  objective  long  term  circumstances  for  which  precise  reasons  are  given…”  and  are 
agreed by Commission, Council and Parliament in the annual budgetary process. 

EN 

19 

   EN 

                                                 
The  overall  objective  of  the  EaP  is  to  forge  closer  relations  between  the  EU  and  its 
neighbours  and  advance  their  reform  agenda  by  pursuing  the  following  operational 
objectives:  

(1) 

(2) 

(3) 

Support  to  partner  countries  reforms  through  a  Comprehensive  Institution-
Building programme (CIB) addressing all relevant sectors of cooperation; 

An  EaP  Multilateral  dimension,  including  support  for  a  restricted  number  of 
flagship initiatives; 

Addressing  economic  and  social  disparities  between  regions  within  a  partner 
country  and  increasing  their  internal  cohesion  through  supporting  economic  and 
social development.  

Results  

–  Progress in implementing agreed reforms; 

–  Legislation more in line with the EU acquis; 

–  Reduction of internal economic disparities; 

–  Increased internal stability; 

–  Functioning multi-lateral framework; 

–  Flagship initiatives implemented; 

Indicators 

–  Number of conditions for the conclusion of Association Agreements met; 

–  Reduced level of corruption; 

–  Pace of implementation of the flagship initiatives; 

–  Number of meetings and results of the work of the platforms; 

–  Reduced level of economic and social disparities;  

–  Reduced level of internal conflict. 

5.4 

Method of Implementation (indicative) 

Additional funding will be channelled through ENPI country and regional programmes in 
line with the provisions of the Financial Regulation. 

EN 

20 

   EN 

6. 

MONITORING AND EVALUATION 

6.1 

Monitoring system 

The Commission will monitor progress of its external co-operation on all levels:  

–  input (in particular financial flows: commitments, contracts and payments);  

–  activities / outputs (project and programme execution, internal monitoring carried out 

on the spot by Commission Delegations); and 

–  progress / outcome (external Results-Oriented Monitoring - ROM30) and impact. 

Indicative programmes include the specific objectives and expected results for each area 
of co-operation. 

The  programming  of  long-term  external  aid  for  partner  countries  and  regions  is  carried 
out in the framework of the preparation of strategy papers (up to 7 years) and indicative 
programmes (3-4 years). These programming documents are subject to a mid term review 
providing the flexibility to re-adjust programming priorities.  

6.2 

Evaluation 

In line with the current rules and in view of the vast scope of the activities foreseen, an 
evaluation system covering the different levels of intervention has been set up. 

Notably,  the  financial  regulation  calls  for  regular  evaluation  of  all  (sizable)  activities31. 
Evaluations of wider legal obligations such as the 3 Cs32 are also necessary and ongoing. 

7. 

ANTI-FRAUD MEASURES  

The  protection  of  the  Community’s  financial  interests  and  the  fight  against  fraud  and 
irregularities form an integral part of the ENPI Regulation. 

Administrative monitoring of contracts and payments will be the responsibility of the EC 
Delegations in beneficiary countries. 

30 

31 

32 

The  results-oriented  monitoring  system  (ROM)  allows  a  rapid  appreciation  of  a  project  or 
programme’s performance, as well as of its wider implications and provides the Commission with 
independent  advice  on  its  project  portfolio.  Having  one  consistent  approach  ensures  that  the 
Commission has comparable data for all regions where it provides external assistance. 
This  is  translated  into  the  evaluation  of  single  operations  (e.g.  development  projects),  of 
programmes (e.g. country strategies) and policy sectors or themes (e.g. transport or gender issues). 
Coherence, Complementarity, Coordination. 

EN 

21 

   EN 

                                                 
Each of the operations financed under the ENPI regulation will be supervised at all stages 
in the project cycle through the delegations33.  

Particular attention will be paid to the nature of expenditure (eligibility of expenditure), 
to  respect  for  budgets  (actual  expenditure)  and  to  verify  supporting  information  and 
relevant documentation (evidence of expenditure). 

33 

They shall authorise the Commission (OLAF) to carry out on-the-spot checks and inspections in 
accordance with Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996. 

EN 

22 

   EN 

                                                 
8. 

DETAILS OF RESOURCES 

8.1  Objectives of the proposal in terms of their financial cost in addition to existing allocations: 

Commitment appropriations in EUR mn (to 3 decimal places) 

(Headings of Objectives, actions and outputs should be provided) 

Year 2010 

Year 2011 

Year 2012 

Year 2013 

TOTAL 

Estimated total 
cost 

Estimated total 
cost 

Estimated total 
cost 

Estimated total 
cost 

Estimated total 
cost 

OPERATIONAL OBJECTIVE No.1: 

Comprehensive Institution Building Programme  

18.25 

36.41 

67.61 

64.23 

186.5 

OPERATIONAL OBJECTIVE No2: 

Multilateral Dimension  

OPERATIONAL OBJECTIVE No.3: 

Economic and social development  

6 

0 

15 

0 

30 

12 

30 

60 

81 

72 

TOTAL  

24.25 

51.41 

109.61 

154.23 

339.5 

EN 

23 

 
 
 
 
 
 
 
 
8.2 

Administrative Expenditure 

8.2.1  Number and type of human resources 

Staff to be assigned to management of the action using additional resources  

(number of posts/FTEs) 

Types of post 

2009 

2010 

2011 

2012 

Officials 
or 
temporary 
staff34 
(XX0101) 

A*/AD 

HQ35 

Del  

B*, C*/AST 

Staff financed36 by art. XX 
01 02 

Other staff37 financed by 
ex-BA line 19.01.04.02 

Total number of additional 
staff required per year 

0 

0 

0 

0 

0 

0 

2+3 

3+5 

3+5 

6 

1 

0 

6 

6 

1 

0 

6 

1 

0 

12 

25 

18 

27 

40 

2013 

3+5 

6 

1 

0 

35 

50 

8.2.2  Description of tasks deriving from the action 

In  the  Commission  HQ  a  small  team  (3  AD  and  1  AST)  will  be  created  to  oversee  the 
establishment and co-ordinate the work of four multilateral thematic platforms as described in 
the Commission staff working document. The team will assist the Platforms co-ordinators in 
planning, organising and conducting the meetings. It will also ensure that adequate reporting 
is provided and information is disseminated. 
A total of five  extra  posts (AD) will be allocated to core line services to cater  for  the extra 
work load that the suggested bilateral and multilateral actions will entail for HQ. The six EC 
Delegations in partner countries will be reinforced with one AD official each (total 6).  
Additional  contract  (and/or  local)  agents  and  other  temporary  staff  (foreseen  number  of  61) 
will be needed mostly38 in the Delegations for the labour-intensive co-operation activities that 
will be implemented with the additional financial resources for the EaP.  

34 
35 
36 
37 

38 

Cost of which is NOT covered by the reference amount. 
Includes Officials and Temporary staff for RELEX and 5 officials for line services. 
Cost of which is NOT covered by the reference amount. 
Cost  of  which  is  included  within  the  reference  amount.  This  concerns  contract  agents  and  temporary 
staff (ex-BA line 19.01.04.02). 
For those regional co-operation activities that will be implemented centrally, additional contractual staff 
will be needed in headquarters as well. 

EN 

24 

   EN 

 
 
                                                 
8.2.3 

Sources of human resources (statutory) 

Posts currently allocated to the management of the programme to be replaced 

(cid:133) 
or extended 

(cid:133) 

Posts pre-allocated within the APS/PDB exercise for year n 

X 

Posts to be requested in the next APS/PDB procedure 

(cid:133) 

Posts to be redeployed using existing resources within the managing service  

Posts required for year n although not foreseen in the APS/PDB exercise of the 

(cid:133) 
year in question (for 2009) 

The needs for human and administrative resources shall be covered within the allocation that 
can be granted to the managing DG in the framework of the annual allocation procedure in the 
light of budgetary constraints. 

8.2.4  Other  Administrative  expenditure  included  in  reference  amount  (XX  01  04/05  – 

Expenditure on administrative management) 

Budget line 

(number and heading) 

EUR mn (to 3 decimal places) 

Year 
n 

Year 
n+1 

Year 
n+2 

Year 
n+3 

Year 
n+4 

Year 
n+5  

and 
later 

TOTAL 

Technical 

and 
1 
assistance (including related staff costs) 

administrative 

Executive agencies39 

Other 

technical 

and 

administrative 

assistance 

- intra muros  

- extra muros 

Total  Technical  and  administrative 
assistance 

The  level  of  administrative  expenditures  necessary  to  support  the  implementation  of  these 
initiatives has been set at 3% of the overall commitment appropriations. In addition an effort 
has  also  been  made  to  quantify  the  staff  to  be  financed  under  that  amount  that  will  be 
necessary to manage the additional resources. It is difficult at this stage to go further: this is 
why the above table has not been completed. Administrative and Technical Assistance will be 

39 

Reference should be made to the specific legislative financial statement for the Executive Agency(ies) 
concerned. 

EN 

25 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
called  upon,  when  required  to  implement  the  initiatives  and  within  the  ceiling  for 
administrative expenses set out in this fiche.  

EN 

26 

   EN 

 
8.2.5  Financial cost of human resources and associated costs not included in the reference 
amount 

Type of human resources 

2009 

2010 

2011 

2012 

2013 

EUR mn (to 3 decimal places) 

2.350 

2.838 

2.838 

2.838 

0 

0 

0 

0 

2.350 

2.838 

2.838 

2.838 

Officials and temporary staff (XX 01 
01) 

Staff  financed  by  Art  XX  01  02 
including  auxiliary,  END,  contract 
staff, etc.  

Total cost of Human Resources 
and associated costs (NOT in 
reference amount) 

0 

0 

0 

Calculation– Officials and Temporary agents 

(Reference should be made to Point 8.2.1, if applicable) 

For 2010: 

5 (HQ officials) x 122,000 € (B UDG standard cost) = 610,000 

6 (Delegation Officials) x 290,000 € (Estimated cost) = 1,740,000 

(cid:198) 610,000+ 1,740,000= 2,350,000 

For 2011-13:  

9 (HQ officials) x 122,000 € (B UDG standard cost) = 1,098,000 

6 (Delegation Officials) x 290,000 € (Estimated cost) = 1,740,000 

(cid:198) 1,098,000 + 1,740,000= 2,838,000 

The needs for human and administrative resources shall be covered within the allocation that 
can be granted to the managing DG in the framework of the annual allocation procedure in the 
light of budgetary constraints. 

EN 

27 

   EN 

 
8.2.6  Other administrative expenditure not included in reference amount 

EUR mn (to 3 decimal places) 

2009 

2010 

2011 

2012 

2013 

TOTAL 

XX 01 02 11 01 – Missions 

0.93 

0.129 

0.129 

0.129 

0.48 

XX 01 02 11 02 – Meetings & Conferences 

0.10 

0.10 

0.10 

0.10 

0.4 

XX 01 02 11 03 – Committees  

XX 01 02 11 04 – Studies & consultations 

XX 01 02 11 05 - Information systems 

2 Total Other Management Expenditure 

(XX 01 02 11) 

3 Other expenditure of an 

administrative nature (specify 
including reference to budget line) 

Total Administrative expenditure, other 
than human resources and associated 
costs  

(NOT included in reference amount) 

0 

0.193 

0.229 

0.229 

0.229 

0.88 

Calculation - Other administrative expenditure not included in reference amount 

Missions 

For 2010: 

6 Delegation Officials x 8000 (standard cost per year) = 48,000 

5 HQ officials x 6 missions x 1500 € per mission = 45,000 

For 2010-13: 

9 HQ officials x 6 missions x 1500 € per mission = 81,000 

12 Delegation Officials x 8000 (standard cost per year) = 96,000 

(cid:198) 81,000 + 96,000 = 177,000 

Conferences 

From 2010: 1 international conference per year in Brussels - cost 100,000 

EN 

28 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The needs for human and administrative resources shall be covered within the allocation that 
can be granted to the managing DG in the framework of the annual allocation procedure in the 
light of budgetary constraints. 

EN 

29 

   EN