6 European Neighbourhood Policy
| (25744)
—
—
(25745)
—
—
(25746)
—
—
(25747)
—
—
(25748)
—
—
(25749)
—
—
(25750)
—
—
| Draft Action Plan for Jordan
Draft Action Plan for the Palestinian Authority
Draft Action Plan for the Ukraine
Draft Action Plan for Moldova
Draft Action Plan for Israel
Draft Action Plan for Morocco
Draft Action Plan for Tunisia
|
| Legal base | — |
| Department | Foreign and Commonwealth Office
|
| Basis of consideration | EMs of 21 June 2004
|
| Previous Committee Report | None
|
| To be discussed in Council | July 2004 GAERC
|
| Committee's assessment | Politically important
|
| Committee's decision | Cleared
|
Background
6.1 The European Neighbourhood Policy (ENP) proposes a new framework
for relations with eastern European neighbours of the enlarged
EU (Ukraine, Belarus and Moldova) and southern Mediterranean neighbours
(Morocco, Algeria, Tunisia, Egypt, Israel, Palestinian Authority,
Jordan, Syria and Lebanon), and with three countries of the southern
Caucasus (Georgia, Armenia and Azerbaijan). It holds out the possibility
of a closer relationship with the European Union in return for
progress on internal reform, with the objective of promoting regional
and sub-regional co-operation, political stability and economic
development. The ENP does not prejudice future applications for
EU membership by eligible countries. The Committee considered
and cleared the Strategy on 9 June, along with the Country Reports
on seven "First Wave" partners — Ukraine, Moldova,
Morocco, Tunisia, Israel, Jordan and the Palestinian Authority.[22]
6.2 The Country Reports describe the political, economic
and social situation in the country and assess bilateral relations
between the EU and each partner and progress so far under existing
co-operation agreements. They are designed to inform each Action
Plan, which is the first stage in the ENP process. The Action
Plans, negotiated with partner countries in order to ensure joint
ownership, will define the way ahead for the next three to five
years and will cover a number of key areas for specific action.
They will build on and reflect the existing state of relations
with each partner country and include commitments in the fight
against terrorism and the proliferation of weapons of mass destruction.
The scope of actions which can be undertaken under the Plan for
the Palestinian Authority will inevitably be constrained by its
pre-state status and the conflict with Israel.
6.3 As the Commission and the partner Governments
are still negotiating the contents of each Action Plan, the draft
texts are not at present in the public domain. However, in his
seven Explanatory Memorandums of 21 June, the Minister for Europe
(Mr Denis MacShane) outlines in each case what he describes as
"some of the elements which could form part of the EU's offer"
to each Partner and the likely priorities of each Plan.
Main elements and country priorities
6.4 The main elements are likely to centre on the
following:
- The possibility of moving beyond
co-operation to a significant degree of integration, including
through a stake in the EU's Internal Market, and the possibility
for each Partner to participate progressively in key aspects of
EU policies and programmes;
- An upgrade in the scope and intensity of political
co-operation;
- The opportunity for convergence of economic legislation,
the opening of economies to each other, and the continued reduction
of trade barriers;
- Increased EU financial and technical assistance
to support the actions identified in the Action Plan and to meet
EU norms and standards;
- a new European Neighbourhood Instrument focussing
specifically on cross-border and trans-national co-operation;
- Possibilities of gradual opening of certain Community
programmes, promoting cultural, educational, environmental, technical
and scientific links;
- Deepening trade and economic relations, including
a review of the feasibility of establishing an FTA following Ukraine's
accession to the WTO;
- New contractual links — in some cases,
a new European Neighbourhood Agreement — whose scope will
be defined in the light of progress in meeting the priorities
set out in the Action Plan; and
- In the case of Ukraine, Morocco, Tunisia and
Jordan, establishing a dialogue on visa facilitation.
6.5 The Action Plan will also set out a comprehensive
set of likely priorities for action by each Partner, which the
Minister illustrates in each case:
Ukraine
- " Further strengthening
the stability and effectiveness of institutions guaranteeing democracy
and the rule of law;
- Ensuring the democratic conduct of presidential
(2004) and parliamentary (2006) elections in Ukraine in accordance
with European standards;
- Ensuring respect for the freedom of the media
and freedom of expression;
- Enhanced co-operation in our common neighbourhood
and regional security, in particular working towards a viable
solution to the Transnistria conflict in Moldova, including addressing
outstanding border issues;
- Enhanced co-operation in the field of disarmament
and non-proliferation;
- Removal of import and export restrictions that
impede bilateral trade and implementation of regulatory reforms
in preparation for WTO accession;
- Improving the investment climate, through non-discriminatory,
transparent and predictable business conditions and by the fight
against corruption;
- Tax reform, improved tax administration and sound
management of public finances;
- Early conclusion of negotiations on a readmission
agreement; and
- Ensuring compliance with the internationally
accepted nuclear safety standards in completing and starting-up
of the 'K2R4' nuclear reactors, and full implementation of the
Memorandum of Understanding on the closure of the Chernobyl nuclear
power plant.
"Once the Action Plan for Ukraine is in place,
progress will be monitored using existing structures under the
EU-Ukraine Partnership and Co-operation Agreement. The Action
Plan will be formally reviewed after two years".
Moldova
- " sustained efforts
towards a viable solution to the Transnistria conflict;
- further strengthening the stability and effectiveness
of institutions guaranteeing democracy and the rule of law; ensuring
the democratic conduct of parliamentary elections (February 2005)
in Moldova in accordance with European standards;
- ensuring respect for the freedom of the media
and the freedom of expression;
- resuming co-operation with IMF and World Bank
and reaching agreement on the Enhancing Growth, Poverty Reduction
Strategy Paper and the Medium Term Financial Framework;
- improving the investment climate through appropriate
structural reforms aimed at ensuring non-discriminatory, transparent
and predictable business conditions and by the fight against corruption;
- progress towards a system of efficient, comprehensive
state border management on all sectors of the Moldovan border
including the Transnistrian sector;
- working towards the EU granting Asymmetric Trade
Preferences, by ensuring effective control of the origin of goods
from Moldova;
- stepping up the fight against organised crime,
including trafficking in human beings;
- initiating the process towards concluding a readmission
agreement between the EU and Moldova; and
- establishing a constructive dialogue on visa
co-operation between the EU and Moldova, including an exchange
of views on possibilities of visa facilitation in compliance with
the acquis.
"Once the Action Plan for Moldova is in place,
progress will be monitored using existing structures under the
EU-Moldova Partnership and Co-operation Agreement. The Action
Plan will be formally reviewed after two years".
Morocco
- " Pursue legislative
reform and application of international provisions on human rights;
- Take forward political dialogue and re-enforce
co-operation in the fight against terrorism, and respect for human
rights;
- Development of a favourable environment for growth
and foreign investment;
- Co-operation in matters of employment and social
sector;
- Facilitate trade and negotiate an agreement for
liberalisation of trade in services;
- Progressive integration of Morocco into the European
energy market and application of a protocol for progressive integration
of the Maghreb energy market; and
- Effective management of migration flows, including
signature of a readmission agreement.
"Progress in meeting these priorities will be
monitored in sub-committees established by the Association Agreement.
The European Commission will issue a mid-term report on progress
accomplished. On the basis of this evaluation, the EU and its
member states, together with Morocco, will review the content
of the Action Plan and decide on its adaptation and renewal".
Tunisia
- " Participation of
all parts of Tunisian society in political life;
- Development of political dialogue on democracy
and human rights;
- Re-enforcement of political dialogue and co-operation
in foreign and security policy, notably in the fight against
terrorism and respect for human rights;
- Development of an environment favourable for
growth and foreign investment;
- Co-operation in employment matters and social
policy;
- Facilitate trade and negotiate an agreement for
liberalisation of trade in services;
- Application of a protocol for progressive integration
of the Maghreb energy market; and
- Effective management of migration flows, including
signature of a readmission agreement.
"Progress in meeting these priorities will be
monitored in sub-committees established by the Association Agreement.
The European Commission will issue a mid-term report on progress
accomplished. On the basis of this evaluation, the EU and its
member states, together with Tunisia, will review the content
of the Action Plan and decide on its adaptation and renewal".
Israel
- "Enhanced political dialogue
and co-operation, based on shared values;
- Develop trade and investment flows, by liberalising
trade in services;
- Strengthen co-operation on migration-related
issues;
- Promote co-operation in transport, energy and
telecom networks: in the transport field, in the energy sector
and in the information society area;
- Strengthen the environmental dimension of public
policy and EU-Israel co-operation; and
- Strengthen links and co-operation in 'people-to-people'
contacts.
"Progress in meeting these priorities will be
monitored in sub-committees established by the Association Agreement.
The European Commission will issue a mid-term report on progress
accomplished. On the basis of this evaluation, the EU and its
member states, together with Israel, will review the content of
the Action Plan and decide on its adaptation and renewal".
Jordan
- "Take forward a national
dialogue on democracy and political life, specifically on the
reform of the political parties and the elections law;
- Take steps to develop an independent and impartial
judiciary;
- Take steps to develop further the freedom of
the media and freedom of expression;
- Promote equal treatment of women, by preparing
a plan to increase women's participation in political and economic
life;
- Strengthen political dialogue on issues of international
and regional interest;
- Take measures to improve business conditions
to enhance growth and increase investment in Jordan;
- Enhance Jordan's export potential by: further
liberalisation of trade, simplifying and upgrading customs legislation
and procedures, improving industrial standards and modernisation
of the sanitary and phytosanitary systems;
- Take steps to prepare for liberalisation of trade
in services;
- Strengthen co-operation on justice and home affairs
issues;
- Implement the Jordanian Sustainable Development
strategy, and implement the Government's strategy to reduce poverty;
- Develop the transport, energy and information
society sectors and networks; and
- Strengthen co-operation on science and technology.
"Progress in meeting these priorities will be
monitored in sub-committees established by the Association Agreement.
The European Commission will issue a mid-term report on progress
accomplished. On the basis of this evaluation, the EU and its
member states, together with Jordan, will review the content of
the Action Plan and decide on its adaptation and renewal".
Palestinian Authority
- "Enhanced political dialogue
and cooperation, based on shared values;
- Progress on establishing a functioning judiciary
and effective enforcement of legislation; strengthening the rule
of law and respect for human rights;
- Organisation of parliamentary and local elections
in West Bank and Gaza Strip in accordance with international standards;
- Building on progress made in establishing an
accountable system of public finances; and
- Develop trade relations with the Palestinian
Authority and progress with economic and regulatory reform plans;
fully implement the Interim Association Agreement.
"Progress in meeting these priorities will be
monitored in structures under the Interim Association Agreement.
The European Commission will issue a mid-term report on progress
accomplished. On the basis of this evaluation, the EU and its
member states, together with the Palestinian Authority, will review
the content of the Action Plan and decide on its adaptation and
renewal".
The Government's view
6.6 The Minister says the Government "believes
this is the right moment to develop more coherent EU policies
for its neighbours. We welcome the ENP and its approach, which
should enable a differentiated approach to each partner country
within a wider policy framework. We recognise this is a long-term
policy which will evolve gradually over time. We strongly believe
it is essential that EU Member States remain actively involved
in shaping this policy, to ensure it supports our objectives".
It believes that "clear prioritisation … based on
an analysis of clear and credible economic and other incentives,
should ensure that it is an effective tool for promoting positive
change and targeting technical assistance. We support the approach
of offering greater EU engagement, including the prospect of new
contractual arrangements, in return for progress in meeting agreed
priorities. We strongly endorse the need for commitments on
countering terrorism and the proliferation of WMD".
6.7 The Minister adds that:
"We have emphasised to the Commission the importance
of a strong focus on poverty alleviation within the ENP. This
was recognised in earlier Commission Communications, but seems
to have received less emphasis in the latest proposals. We are
working to ensure that the Commission retains this focus within
broader ENP objectives, consults closely with civil society in
the design and implementation of the Action Plans and takes steps
to create synergies with national plans for poverty reduction.
We have also highlighted the importance of tackling corruption,
a significant obstacle to reform in many of the countries covered
by the ENP".
6.8 The Minister notes that
"there are no additional financial implications
at this stage. Co-operation from 2004-2006 will be funded from
within existing regional budgets and we continue to believe that
no increase in spending is required to implement the ENP at present.
Existing assistance should be made more effective and targeted
towards the priorities identified under the policy. The funding
arrangements for the post-2007 European Neighbourhood Instrument
will need to be considered as part of the wider negotiations on
the next Financial Perspective. While no details of the proposed
size of the instrument have been given, the Commission has indicated
that it will look for a substantial increase in the amount allocated
to the ENP compared to pre-2007 assistance. The Government supports
a small, tightly focused European Neighbourhood Instrument concentrating
on cross-border actions, with the bulk of assistance to neighbourhood
countries coming from the proposed Economic Co-operation and Development
instrument, allocated on the basis of objective criteria. The
Government will also want to ensure that detailed financial proposals
for the instrument are consistent with an EU budget of around
1% GNI".
6.9 Commenting specifically on Ukraine and
Moldova, the Minister says that the approach suggested
in the draft Action Plan "rightly combines opportunities
for closer co-operation in areas of common interest, with a stronger
desire from the EU to establish a set of shared common values
including on issues such as human rights, democratisation, counter-proliferation
and counter-terrorism with its nearest neighbours", the hope
being that the Action Plans will provide support and impetus to
their own reform programmes aimed at further integration into
European economic and social structures. It says the same about
Morocco and Tunisia. The Minister adds that "the
Government believes that the Action Plan will contribute to our
objectives of encouraging reform in Tunisia, particularly in the
areas of political pluralism, civil liberties, media freedom and
human rights".
6.10 As regards Israel and with the Palestinian
Authority, the Government believes that the EU's relationship
" should be based on a continued commitment from both sides
to progress on the Middle East Peace Progress. We therefore welcome
the suggested priority areas in the Action Plan focussing on
political dialogue and co-operation, which we expect would include
rights of minorities, progress on resolving the Middle East conflict,
and on the fight against anti-Semitism and other forms of racism,
xenophobia and intolerance". Finally, on Jordan, after
again commending the stronger desire from the EU "to establish
a set of shared common values including on issues such as human
rights, democratisation, counter-proliferation and counter-terrorism
with its nearest neighbours", the Government especially
" welcomes the complementarity between the priorities of
the Action Plan and the priorities of the Jordanian Government's
own reform programme".
6.11 The Minister says that the Commission will
present a formal proposal for the Action Plans to the General
Affairs and External Relations Council in July, and that he will
submit each proposal to the Committee as soon as it is received,
prior to the July Council meeting.
Conclusion
6.12 A different plan for each partner country
within a wider policy framework, founded on partnership and joint
ownership and not too tightly specified at the outset, seems to
us the right approach. We endorse the emphasis on commitments
on countering terrorism and proliferation of weapons of mass destruction,
and support the Government's endeavours to ensure that the Commission
retains a strong focus on poverty alleviation and tackling corruption.
6.13 It is clearly right that the Action Plans
should be neutral on EU membership and that, without this particular
incentive, other incentives should be offered to encourage change.
It is necessary to be both positive and realistic. Those states
which do well can hope for enhanced trade access, increased help
in capacity building, better access for nationals, and so on.
Over the long-term, the Action Plans hold out the prospect of
real benefits for all concerned.
6.14 We note too that the Action Plans are cost-neutral
at this stage. Looking ahead, the possibility of new contractual
arrangements — the European Neighbourhood Agreement —
whose scope would be defined against progress in meeting the
agreed Action Plan priorities underlines the importance of realistic
and robust evaluation. We agree that proposed new financial instruments
will need to be tightly drawn and consistent with the 2007-13
Financial Perspective.
6.15 We are grateful to the Minister for continuing
to give us early sight of each stage in the development of this
important component of the EU's external relations. There will
be many additional opportunities, both in the immediate future
(when the final versions are deposited) but more importantly in
the years ahead, for us to continue to scrutinise the process
as it develops and to ensure that it remains in line with its
stated goals and approach to expenditure, i.e. targeted, outcome-oriented,
properly-evaluated, re-shaped accordingly. For now, we have no
questions to ask, and clear the documents.
22 (25708) 9921/04:HC 42-xxii (2003-04), para 22 (9
June 2004). Back
|
