Opinion of the European Committee of the Regions — EU Enlargement Strategy 2015-2016
Date: 2016-06-16
Institutions: Commission for Citizenship, Governance, Institutional and External Affairs, European Committee of the Regions
Subjects: Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North Macedonia, Serbia, Türkiye, democratisation, enlargement of the Union, regional cooperation








C_2017017EN.01006001.xml










18.1.2017   


EN


Official Journal of the European Union


C 17/60





Opinion of the European Committee of the Regions — EU Enlargement Strategy 2015-2016
(2017/C 017/10)











Rapporteur:


Anna MAGYAR (HU/EPP), Vice-President of the County Council of Csongrád




Reference document:


Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions — EU Enlargement Strategy COM(2015) 611 final









POLICY RECOMMENDATIONS

THE EUROPEAN COMMITTEE OF THE REGIONS,

Horizontal remarks









1.


reaffirms its commitment to the enlargement process, which is an investment in stability and prosperity; notes that past enlargements helped to overcome historical divisions in Europe, increased prosperity and demonstrated that enlargement is the EU’s most powerful foreign policy tool;












2.


notes that the European Commission expects no further enlargement during its present mandate, however this must not result in a standstill; acknowledges that time is needed for preparations, but points out that it is essential to use this time well in order to advance the enlargement process through rigorous and fair conditionality and steady progress in the related tasks ahead, and by a credible, realistic European perspective in order to avoid losing the engagement and motivation of candidates and potential candidates for enlargement as reforms and progress in the enlargement countries are in the interest of every EU Member State and each candidate and potential candidate for enlargement;












3.


stresses the imperative need to keep the EU in its current form through transparent, appropriate policies which will guarantee and maintain strong political, economic and territorial cohesion. Guaranteeing wellbeing and development for the Member States and European security from various threats is the first step towards a quantifiably enriched European Union;












4.


believes that the enlargement package, presented by the Commission in its communication and 2015 country reports, generally presents an accurate and overall positive assessment, considering that there is visible progress in every candidate and potential candidate for enlargement regarding some issues, even when significant shortcomings (or, in some cases, backsliding) persist, and further efforts are needed to achieve sustainable results;












5.


urges Member States, candidates and potential candidates for enlargement and EU institutions to ensure the success of the enlargement process; reminds candidate and potential candidate for enlargement of the ownership and commitment required in this regard;












6.


stresses that the enlargement process should be an inclusive exercise involving all of society; underlines that the role of the local and regional level is essential, as it is closest to the citizens in terms of subsidiarity, communication, participatory democracy, diversity and identity; it is also key for economic development, cross-border cooperation, absorption of EU funds and implementation of EU legislation;












7.


welcomes the reference by the Commission to the key role of local and regional authorities (LRAs); stresses, however, as it has done on numerous previous occasions, that better and more detailed focus is needed in future communications and reports on local and regional governance, even when there is no separate acquis chapter or established EU model on the issue of decentralisation and multi-level governance; but considers that ensuring strong, democratic and effective local and regional governance is an essential element of pre-accession preparation as implementation of reforms and a consistent, credible track record of them is often achieved at local level, and points to the importance of subsidiarity as a key EU principle enshrined in the treaties;












8.


points out that local authorities have a role to play in illustrating the benefits of EU membership and encouraging people to make use of the instruments offered by the EU to EU citizens. The right to European citizenship offers individuals many new opportunities, and so the EU must be promoted in terms of its advantages for individuals as well as for society;












9.


stresses that the involvement of LRAs is also key in communication regarding enlargement in order to ensure public support for the process by demonstrating its benefits for the general public; points to the importance of cooperation with civil society in this regard;












10.


considers that the new approach involving a four-year enlargement strategy offers a more reliable perspective with consistent conditionality; welcomes the clearer methodology, the harmonised terms and better identification of tasks as an opportunity for comparability, and supports the strengthened focus on state of play and on the progress in the different fields and measures identified to be necessary for further progress;












11.


believes that the fundamentals and priority areas in the Commission communication and reports are generally properly identified; invites the Commission to consider also focusing on other relevant, horizontal issues which are important in every candidate and potential candidate for enlargement among its priority areas (e.g. social policy, focus on vulnerable/disadvantaged groups and minorities);












12.


underlines that efforts are necessary to match LRA responsibilities with proper resources and capacities in every enlargement country and calls for LRAs to be involved in policy making in order to ensure effective implementation;





Rule of law and fundamental rights









13.


agrees that further progress regarding the rule of law and fundamental rights including the protection of minorities, is indeed of paramount importance, and presents a challenge for every candidate and potential candidate for enlargement; this assessment also confirms the validity of the ‘new approach’ to the enlargement, which is based on an increased focus on the judiciary and fundamental rights and on justice, freedom and security; flags up the importance of cooperation in and with the Council of Europe (CoE), and its Congress of local and regional authorities regarding fundamental rights, the rule of law and local democracy;












14.


welcomes the focus on freedom of expression, but stresses that an equally strong focus is needed on the issue of vulnerable and disadvantaged groups and minorities, which is also relevant in every candidate and potential candidate for enlargement (including national, ethnic and religious minorities and the Roma as an often multiply disadvantaged group, and preventing discrimination on the basis of sexual orientation or gender, and against people with disabilities, minors and the elderly, and internally displaced persons and refugees), pointing out that awareness raising, ownership and especially proper, credible implementation and results are also needed at local and regional level; in this sense the situation in these countries, in particular with regard to vulnerable groups, needs to be carefully monitored;












15.


calls for further efforts to depoliticise public administration and increase transparency in every candidate and potential candidate for enlargement, as high political interference remains a challenge and hinders cooperation between government levels;












16.


stresses the importance of the fight against public and private corruption at all levels of government and society, underlining that credible results in this field usually require progress at local level as well;












17.


stresses the need to counter radicalisation, extremism, terrorism and the issue of foreign fighters, in particular the prevention of radicalisation of young people, so that their potential is not lost, but rather they are presented with a credible perspective in terms of employment, education, the strengthening of diverse local communities, including the protection and respect of their identity, of cultural and religious heritage, and thereby also fostering core European values rooted in its Christian culture; therefore calls on local communities to support education on tolerance and reconciliation, and on governments to facilitate this;












18.


condemns terrorist attacks and all forms of the use of violence, including threats of using violence; points out that the use of violence is unacceptable in any political debate;





Economic development and connectivity









19.


stresses that economic development is a key factor in ensuring stability (e.g. through job opportunities and social inclusion); welcomes the economic reform programmes and the strengthening of cooperation and coordination in the form of the Economic and Financial Dialogue Meeting between the EU and the Western Balkans and Turkey;












20.


calls for more effective and transparent management and allocation of EU pre-accession funds in candidates and potential candidates for enlargement, including at local level, to avoid losing funding due to lack of policy planning, training, coordination and efficient absorption capacities at local level; also stresses the importance of involving both cities and smaller towns in training and support programmes;












21.


welcomes the focus on the connectivity agenda adopted by the EU, and regional initiatives which should be more inclusive (Berlin Process etc.), stressing the need to involve more local, regional and national authorities in candidates and potential candidates for enlargement and also in Member States; and encourages further investments (transport, energy, digital telecommunications, education, youth, etc.);












22.


stresses the need to bring waste disposal processes up to EU level and to limit surface waste disposal;












23.


encourages and welcomes the work of the National Investment Committees in Western Balkans beneficiaries to create a single project pipeline and calls for the coordination of structural instruments;












24.


emphasises the fundamental role played by regional and local democracy in strengthening democratic institutions and their administrative capacity; highlights the role of elected local and regional assemblies as spaces for civil society dialogue and growth and for discussion between decision-makers and stakeholders; points out that local and regional authorities play an important part in engaging with public opinion on European policies and integration; also emphasises that strengthening local and regional governance bolsters administrative reform and improves the delivery of public services;





Regional cooperation among enlargement countries









25.


reiterates that good neighbourly relations and regional cooperation are essential elements of the Enlargement Process, as well as the Stabilisation and Association Process; welcomes and encourages the overall positive developments across candidates and potential candidates for enlargement and commends the efforts made, but calls for tangible progress on issues as yet unresolved and for sustainable results; calls on local and regional communities to contribute to this process;












26.


calls on every actor involved to take this positive momentum forward, including fostering reconciliation at community and local level and support for inter-ethnic, inter-religious and intercultural dialogue;












27.


encourages candidates and potential candidates for enlargement to use existing Twinning or TAIEX programmes;












28.


points out that the Committee of the Regions and its working groups and joint consultative committees provide a good forum for contacts and for the exchange of best practices between LRAs, and welcomes the positive outcome of recent JCC and WG meetings, including the inaugural meeting of the JCC with Serbia; furthermore, looks forward to the results of the Enlargement Day which will bring together all these bodies in order to examine issues of a horizontal and thematic nature relevant to all of them;





Migration









29.


is pleased that the Commission highlights the issue of migration, as the unprecedented current situation concerning refugees and economic migrants affects the entire region (in particular Turkey and also the former Yugoslav Republic of Macedonia and Serbia) and Member States along the migratory route, and no solution can be found without joint efforts, solidarity and mutual delivery on commitments; calls for the implementation of the recommendations of the conference on the Eastern Mediterranean and Western Balkans route as well as the EU-Turkey Statements of 29 November 2015 and 18 March 2016 and the Joint Action Plan;












30.


welcomes both the efforts made by the Member States and in particular the candidates to handle the crisis, and the resources provided by them, including the challenges along the migratory route in Serbia and the Former Yugoslav Republic of Macedonia and the largest number of migrants and refugee populations in the world currently hosted by Turkey; stresses the need for continued assistance from the EU that should benefit the local and regional authorities; and the need to boost investment in the region to create job opportunities so that the social and economic potential of migrants and refugees is not lost;












31.


underlines the key role of local communities, especially those along the migratory route, that are the first to be affected by the influx of migrants and refugees; stresses, however, that local capacities are limited and uneven, which means that there is a need for further assistance for the local level and engagement with LRAs, and points out that special attention must be paid to the needs, concerns and security of and challenges for local communities affected by the mixed migratory flow. Encourages partnerships between local communities along the migratory route in order to exchange information and best practice and expertise, including on integration, training, education, employment, return and asylum and the fight against smuggling and trafficking;












32.


with reference to the priorities and measures set out in recent European Council conclusions stresses the need for prevention regarding the situation in crisis regions, including an effective development policy, and to focus efforts on refugees in legitimate need of international protection; therefore flags up the need to ensure both thorough and speedy processing of asylum applications and facilitate effective return according to the common EU standards for those whose applications are rejected, and supports the proposal for an EU list of safe countries of origin;












33.


emphasises the need to review and, if necessary, reform traditional approaches to aid in order to help eradicate the causes of economic migration; and also the need to involve the local and regional level from both Member States and candidate countries in the strategic decisions concerning development policy, also aimed to eradicate hunger, poverty and the causes of economic migration;












34.


also stresses the need for greater EU involvement in initiatives and policies focusing on migrants’ countries and regions of origin, with a view to radically reducing the influx of refugees forced to abandon their country and economic migrants taking the perilous journey to Europe; and to step up diplomatic intervention to promote peace in conflict-affected countries;





Turkey









35.


underlines the key partnership and interdependence between the EU and Turkey, and supports strengthened cooperation on shared interests; welcomes Turkey’s commitment to reforms and EU accession and calls for this renewed dynamic to be maintained within the framework of relevant European Council and Council conclusions as well as EU-Turkey joint statements; calls for the full implementation of the Visa Liberalisation Roadmap towards all Member States;












36.


recognises that the accession negotiations have been given fresh momentum in line with recent conclusions by the Council, the European Council and EU-Turkey summits and encourages further progress in accordance with the negotiation framework and relevant Council conclusions; notes that the good level of preparation in some areas needs to be supported by overcoming shortcomings or, in some cases, serious problems in others;












37.


considers that progress on issues related to the rule of law and fundamental rights is a key step forward, and calls on Turkey to cooperate with the Commission on preparatory work for Chapters 23 and 24 without prejudice to the position of Member States; stresses that more needed to be done in this fields especially regarding freedom of expression and thought, freedom of the media, freedom of conscience and religion and freedom of assembly and association, in conjunction with respect for human rights, including minority rights, gender equality and fight against corruption; it is essential to achieve substantial results and a credible track record in this regard, and calls for strengthened efforts, commitment and ownership in alignment with the EU acquis in these issues, including at local level; in this light, stresses the great importance of interreligious and intercultural dialogue at all levels, in strengthening civil society and international partnerships;












38.


welcomes the adoption of the National Strategy for Regional Development, involving regional development agencies, a coordination mechanism and action plans; calls for it to be implemented and encourages improvement regarding regional disparities; in addition, calls for all parties concerned to make an effort to facilitate the peace and reconciliation process regarding the Kurdish issue;












39.


stresses the need to combat terrorism, condemns recent terrorist attacks and expresses solidarity with the victims; furthermore, calls for action to tackle radicalisation, including fostering integration at local level;












40.


notes that fiscal decentralisation and resources at local and regional level are still limited, and stresses the need to go beyond the amendments of the 2012 law on municipalities;












41.


encourages, supports and calls for a fair, comprehensive and viable settlement of the Cyprus issue, based on relevant UNSC Resolutions, international law and the values upon which the EU is founded; welcomes the positive momentum and engagement towards a mutually acceptable solution and calls on Turkey to actively support efforts to this effect;












42.


calls for the full and non-discriminatory implementation of the Additional Protocol to the EU-Turkey association agreement towards all EU Member States, including the Republic of Cyprus; calls on Turkey to maintain good neighbourly relations with all its neighbours, a key element of the accession process; flags up the need to respect the sovereignty and sovereign rights of all Member States in accordance with EU principles, UN resolutions and international law; calls on Turkey to begin withdrawing its forces from Cyprus and to transfer the sealed-off area of Famagusta to the UN in accordance with UNSC Resolution 550 (1984); stresses that such confidence-building measures would constitute a chance for economic, social and regional growth for both communities; notes that inter-communal talks, and dialogue between civil society in local communities can foster the agreement;












43.


calls for further efforts to upgrade the CoR-Turkey Working Group to a joint consultative committee;












44.


considers it essential that the civil society of Member States should participate more fully throughout the entire process;





Montenegro









45.


welcomes the commitment of and progress made by Montenegro on its path to EU accession, and also the opportunity to strengthen stability inherent in the invitation to join NATO;












46.


calls for all parties to strengthen cross-party political dialogue; and for all levels of government to ensure that the next elections are held according to the highest democratic standards based on the new electoral legislation;












47.


stresses the need to ensure a credible track record with regard to the rule of law and fundamental rights, including at local level; in this regard, welcomes local action plans for the prevention of corruption prepared by a vast majority of municipalities, along with local social inclusion plans, and calls for them to be implemented properly and monitored appropriately;












48.


welcomes the efforts made with regard to the professional development of local civil servants, yet stresses the need for further progress (e.g. training and more transparent recruitment procedures based on the merit principle); welcomes the amendments adopted to the law on the financing of local self-government, and encourages further efforts to make local self-government financially self-sufficient;












49.


welcomes programmes by the Ministry of the Economy to support less developed municipalities and promote exports by local and regional companies;





Serbia









50.


welcomes Serbia’s commitment to EU accession which has already delivered results regarding the timely completion of the screening procedure and the opening of the first negotiation chapters, and encourages Serbia to continue these positive steps (e.g. the completion of various strategic documents) by delivering on its commitments; in particular calls on authorities to put anti-corruption actions onto a durable and sustainable track;












51.


welcomes the presentation of the action plans for Chapters 23 and 24 and is pleased that the legislative environment in guaranteeing fundamental rights is in place, but stresses the need to ensure effective, consistent implementation across the country;












52.


welcomes the adoption by the government of the dedicated action plan on national minorities and calls for it to be implemented properly, and points to the opinions of the CoE advisory committee in this regard; commends the high degree of protection of national and ethnic minorities in Vojvodina, and calls for these rights to be ensured at local level as well (concerning education, access to media and religious services, use of minority languages including for public administration procedures and civil register, and proportional representation in the public sector); welcomes the generally good inter-ethnic relations, and encourages further progress; welcomes the ethnic- and other minority-friendly rhetoric that dominates the discourse of the highest representatives of the government;












53.


considers the National Minority Councils to be a good example, and stresses the need to ensure compatibility between the law on National Minority Councils and sectoral legislation, while preserving the level of already acquired rights and competences;












54.


points out that local capacity is often weak and uneven, and calls for proper resources at decentralised level that are appropriate for the tasks assigned and with linkages between efficiency of public spending and subsequent income; points out that the law on Vojvodina’s financing has yet to be adopted;












55.


welcomes the public administration reform strategy and the training strategy on local self-government, and calls for its proper implementation and for the adoption of a civil service law for local government employees; considers the work of the National Convent on European Integration and local consultations to be positive examples;












56.


calls for the implementation of the OSCE/ODIHR recommendations on municipal elections;












57.


welcomes and supports positive developments in the normalisation process and the Belgrade-Pristina dialogue, delivering results to the people, and encourages further progress by delivering on commitments and implementing agreements, thus strengthening cooperation and trust; calls upon authorities to actively promote normalisation;





The former Yugoslav Republic of Macedonia









58.


underlines that this country was the first to sign a Stabilisation and Association Agreement (SAA), and in light of this, expresses its concern about the stalemate in the integration process, and in promoting commitments and reforms. Calls both for renewed political will by the country, and for the EU to confirm the country’s credible European perspective to encourage delivery on the commitments of the country;












59.


calls for all parties to live up to their responsibilities in implementing the June/July 2015 political agreement fully and constructively, and for the implementation of the Urgent Reform Priorities; stresses the need to tackle backsliding in the area of freedom of expression, especially in rule of law including the judiciary and trust in the political system; encourages further progress (built on previously achieved results regarding a relatively good level of alignment with the acquis) founded on a credible track record, including at local level;












60.


expects, based on the above, that the Commission will be able to extend its recommendation to open accession negotiations in line with the Council Conclusions and established conditionality;












61.


stresses that further implementation of the decentralisation agenda is essential; in this regard, welcomes the strategic programme for 2015-2020 and calls for the implementation of the second phase of fiscal decentralisation;












62.


underlines that good neighbourly relations, including finding a negotiated and mutually acceptable solution to the name issue under the auspices of the UN, remain essential and also that LRAs play a constructive role in this respect in line with the relevant commitment by the main political party leaders under the 2015 June-July political agreement; in this spirit actions and statements that undermine good neighbourly relations should be avoided;





Albania









63.


welcomes the proper focus and steady progress made by Albania on key reform priorities, especially regarding the judiciary; and encourages Albania to step up the pace of reforms, notably in the areas under the key priorities, with particular attention to the rule of law, the de-politicisation of public administration, the effective protection of human rights including the rights of persons belonging to minorities throughout Albania and to implement property rights and also to further improve the business and investment environment and address the high level of shadow economy in order to start accession negotiations; recalls that a sustained, comprehensive and inclusive implementation of the key priorities has to be ensured; in particular welcomes the new legislation regarding the exclusion of convicted persons from Parliament while stressing the need for a proper results record; it also welcomes the anti-corruption strategy and action plan; urges further progress in policy and legislative measures and proper implementation;












64.


is pleased that the 2015 local elections were held without major incidents, but calls for greater impartiality and professionalism; furthermore, welcomes the ad hoc committee set up by Parliament concerning electoral reform and points to the OSCE/ODIHR recommendations in this regard as well as the ones made by the CoE Congress/CoR Electoral Observation Mission calling for a de-politicisation of the public administration and ensuring impartiality;












65.


calls for the reforms process to be broadly inclusive involving all political and civil actors concerned, including the opposition and relevant stakeholders, and commends the work of the National Council on European Integration in this regard, as a positive example;












66.


welcomes the national decentralisation strategy with its properly defined priorities, and the allocation of a transitory fund; calls for further progress in the implementation of the reform of territorial administration in an inclusive way through continuous and close dialogue with all stakeholders, including minorities; welcomes the new organic law on local self-government clarifying responsibilities and improving inter-institutional cooperation among different levels of government while underlining the importance of its effective implementation;





Bosnia and Herzegovina









67.


is pleased that the country is back on track in the integration process considering that a European perspective is a key incentive for the country, and encourages further delivery on the Reform Agenda, as the entry into force of the SAA shows that commitments can deliver results;












68.


accordingly, is pleased that Bosnia and Herzegovina submitted an application for EU membership on 15 February 2016 that provides encouragement for both the country and the enlargement process; therefore stresses the need to keep up this momentum in order to be able to deliver the meaningful progress in the implementation of the Reform Agenda necessary to advance along this path;












69.


calls for the SAA to be adapted fully following Croatia’s accession and for steps to ensure that the Constitution complies with ECHR rulings;












70.


calls for better coordination between government levels in order to eliminate obstacles to the functionality of the country, to effective implementation of the Reform Agenda, to mobility, investment and connections in various policy areas and to the creation of a single economic area. Points out that decentralisation does not mean fragmentation, and that there is also a need for coordinated framework strategies, as reforms need to advance at all levels; encourages the development of common goals that are compatible but move beyond individual interests;












71.


in this regard the smooth operation of an effective coordination mechanism on EU matters will be necessary for the country to be able to face the challenges ahead on the EU path; progress will also open the way for Bosnia and Herzegovina to fully benefit from the EU funding available;












72.


considers that entity level legislation is largely in line with the European Charter of Local Self-Government but calls for more effective distribution of responsibilities among entities, cantons and municipalities;





Kosovo
 (1)









73.


welcomes the signing and ratification of the SAA and its entry into force on 1 April 2016, which could signal a new chapter in Kosovo’s relations with the EU; encourages Kosovo to continue the implementation of EU-related reforms (e.g. adoption of the human rights law package) and other positive steps (e.g. establishment of the Specialist Chambers, normalisation process);












74.


emphasises that obstructing political debate through violent means is not acceptable, and calls for all parties to return to dialogue and normal procedures;












75.


welcomes the results achieved in visa liberalisation, stresses the importance of the fulfilment of all relevant conditions set and encourages further progress;












76.


stresses the need to continue efforts regarding the protection of cultural and religious heritage, especially at local level;












77.


welcomes and supports positive developments in the normalisation process and the Belgrade-Pristina dialogue, delivering results to the people, and encourages further progress by delivering on commitments and implementing agreements, thus strengthening cooperation and trust; calls upon authorities to actively promote normalisation.





Brussels, 16 June 2016.


The President of the European Committee of the Regions

Markku MARKKULA




(1)  This designation is without prejudice to position on status, and is in line with UNSCR 1244/99 and the ICJ Opinion on the Kosovo declaration of independence.