4 Enlargement Strategy and Main Challenges
2014-15
| Committee's assessment
| Politically important |
| Committee's decision | Not cleared from scrutiny; further information requested
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| Document details | Commission Communication on EU enlargement strategy and challenges 2014-15 and 2014 Country Progress Reports on Montenegro, Serbia, Turkey, the former Yugoslav Republic of Macedonia, Albania, Bosnia and Herzegovina, and Kosovo
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| Legal base | —
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| Department | Foreign and Commonwealth Office
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| Document numbers | (a) (36392), 14152/14, COM(14) 700; (b) (36393), 14153/14, SWD(14) 301; (c) (36394), 14154/14, SWD(14) 302; (d) (36395), 14155/14, SWD(14) 307; (e) (36396), 14156/14, SWD(14) 303; (f) (36397), 14157/14, SWD(14) 304; (g) (36398), 14158/14, SWD(14) 305; (h) (36399), 14159/14, SWD(14) 306
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Summary and Committee's conclusions
4.1 The Commission's annual report has traditionally
provided the basis for the Council to take stock and give direction
to accession negotiations and pre-accession reform priorities
(the Council being responsible for decisions on the admission
of new Member States).
4.2 The Commission published its latest annual package
of reports on 10 October 2014. The Commission Communication, "Enlargement
Strategy and Main Challenges 2014-2015", provides a statement
of the EU's evolving enlargement strategy, an assessment of progress,
and a look forward to the challenges and priorities for 2015.
This is accompanied by the customary set of comprehensive Progress
Reports for each of the enlargement countries (including candidate
and aspirant countries). Iceland remains a candidate country,
but its government decided to suspend accession negotiations in
2013. The other candidate countries are Albania, Macedonia, Montenegro,
Serbia and Turkey. Potential candidate countries (those without
formal Candidate Status but with an agreed EU perspective) are
Bosnia and Herzegovina (BiH) and Kosovo.
4.3 This year's "Strategy" Communication
is subtitled "Completing the Foundations for Credibility":
reflecting the shift in recent years to "frontloading"
the core priorities — rule of law, economic governance,
and public administration reform — in accession negotiations
and enhancing the monitoring of candidate countries. The tenth
anniversary of the historic accession of ten new Member States
in 2004 is noted, with mention of the expanded business opportunities,
increased trade and investment (with foreign direct investment
from the rest of the world to the EU doubling as a percentage
of GDP, from 15.2% of GDP in 2004 to 30.5% in 2012) and better
quality of life in those countries.
4.4 The Commission asserts that the accession process
is rigorous, built on strict but fair conditionality, established
criteria and treating each country on its merits. The Strategy
underlines the positive impact of their EU perspective on the
western Balkan countries (enhancing stability, improving regional
relations, deepening cooperation with the EU on key foreign policy
issues, leveraging economic, political and social reform). But
it also underlines how much each of the candidate and aspirant
countries has to do with regard to implementation, especially
in tackling corruption and organised crime, reforming public administration,
judicial reform and in those areas encompassed by the fundamental
freedoms of European society (embedding a parliamentary process,
respecting minority rights, ensuring media freedom etc.).
4.5 All in all, 2014 is seen as a year of fitful
progress. In Albania and Macedonia, the opposition
is boycotting parliament and thus blocking reforms. In Kosovo,
a government has yet to be formed after the June elections; and
in Bosnia and Herzegovina (BiH), the Commission's reference
to a lack of collective will suggests that it does not expect
long-standing political inertia to be resolved by this month's
elections. Problems with "rule of law/good governance"
issues predominated in Montenegro — so much so that
the Commission indicates that it may slow down the accession process
(the first fruits, perhaps, of "front-loading" this
area, and adjusting the rate of progress accordingly). In the
case of Turkey, there is a litany of concerns about the
erosion of fundamental freedoms and the separation of powers.
Serbia is the country about which the Commission appears
to be most hopeful — even though it is the least supportive
of what is regarded as a benefit of the process, viz., alignment
with the EU's foreign policy priorities, where the new government
prefers to sustain active relations with Russia and to welcome
President Putin in Belgrade as recently as 16 October.
4.6 The Minister for Europe (Mr David Lidington)
welcomes the Commission's "fair and balanced assessment of
progress and challenges in EU enlargement countries and of the
enlargement process itself", which he says is "closely
aligned with the Government's priorities on enlargement, highlighting
the importance of addressing the fundamentals first and the need
for firm but fair conditionality", and which "focuses
correctly on the central challenges of the rule of law, judicial
reform and the fight against organised crime and corruption; economic
governance and competitiveness; the importance of strengthening
democratic institutions and public administration reform, and
protecting fundamental rights; and the need for good neighbourly
relations and dispute resolution".
4.7 The Minister welcomes the call for enlargement
countries' consolidated efforts to tackle illegal migration and
improve border management, which are:
"particular Government priorities on which
it wishes to see greater activity and enforcement in enlargement
countries. The Government welcomes the focus on human trafficking,
but noted through the Reports less progress in tackling it in
Montenegro, Macedonia and Kosovo than in the other countries.
Moreover, the Government would like to see the absence of laws
against trafficking of minors addressed, and continued development
of asylum and national referral systems in line with EU standards."
4.8 The Minister's summaries of, and other detailed
views on, the Commission Communication and each of the Country
Progress Reports are set out in the "Background" section
below. In this latter regard, the Minister says:
"At this stage, the Government is only able
to provide an initial position on the Reports. As conclusions
on EU enlargement will be adopted at the General Affairs Council
on 16 December, with any formal decisions to be endorsed at the
European Council on 18-19 December, there is time for further
developments in the interim.
"The Government does not foresee any major
decisions being taken on the accession progress of individual
enlargement countries in the context of this Annual Enlargement
Package. In terms of its position, it intends to take a final
decision nearer December that will give time for its own considered
analysis, in the light of any further progress countries have
made and the outcomes of discussions in the relevant Council working
groups. The Government will keep Parliament updated over the autumn
on developments in its position."
4.9 What the Minister says immediately above is
reminiscent of his caveat, at the same juncture a year ago, with
respect to the Commission's recommendation that Albania be granted
candidate status. That began a lengthy exchange between the Minister
and the Committee, which we deal with further in a separate chapter
of this Report.[13]
4.10 So far as these documents are concerned (which,
together, run to several hundred pages), we are, once more, grateful
to the Minister and his officials for his extremely helpful Explanatory
Memorandum.
4.11 We look forward to being updated over the
next several weeks, particularly with regard to those countries
in which political deadlock is hindering the process; and/or those
where the Commission is emphasising the need to move beyond legislation
and build a track record of implementation.
4.12 On this occasion, we note that the Minister
does not foresee any major decisions being taken by the December
General Affairs or European Council on the accession progress
of individual enlargement countries. We also note that the incoming
President of the Commission has publicly stated that there will
be no further enlargement during the next five years.
4.13 As commentators have observed, against that
sort of background and looking at the "ring of fire"
that is the EU's "near neighbourhood",[14]
concern is bound to arise that public support for EU-inspired
reforms may be undermined unless the economic benefits are more
tangible. We would accordingly be interested to know more about
the German-led initiative to encourage the west Balkan states
to work together on regional projects, particularly in energy
and transport; and how changes embodied in the IPA-II will enable
the EU to focus on fewer and bigger projects.[15]
4.14 In the meantime, we shall retain the documents
under scrutiny.
Full details of the documents:
(a) Commission Communication: "Enlargement Strategy and
Main Challenges 2014-15": (36392), 14152/14, COM(14)
700; (b) Commission Staff Working Document: Montenegro 2014
Progress Report: (36393), 14153/14, SWD(14) 301; (c) Commission
Staff Working Document: Serbia 2014 Progress Report: (36394),
14154/14, SWD(14) 302; (d) Commission Staff Working Document:
Turkey 2014 Progress Report: (36395), 14155/14, SWD(14)
307; (e) Commission Staff Working Document: The former Yugoslav
Republic of Macedonia 2014 Progress Report: (36396), 14156/14,
SWD(14) 303; (f) Commission Staff Working Document: Albania
2014 Progress Report: (36397), 14157/14, SWD(14) 304: (g)
Commission Staff Working Document: Bosnia and Herzegovina 2014
Progress Report: (36398), 14158/14, SWD(14) 305; (h) Commission
Staff Working Document: Kosovo 2014 Progress Report: (36399),
14159/14, SWD(14) 306.
Background
4.15 The Copenhagen criteria require:
— the stability of institutions guaranteeing
democracy, the rule of law, human rights and respect for and protection
of minorities; and
— a functioning market economy able to
cope with the competitive pressure and market forces within the
Union.
4.16 The ability to assume the obligations of membership
is based on progress in transposing and implementing the acquis
(the body of EU law). For the purposes of accession negotiations
this is split into 35 chapters ranging from the free movement
of goods, through the judiciary and fundamental rights, to the
environment and financial control.
The Commission Communication
4.17 The Commission begins by stating that it has
"strengthened the credibility of enlargement policy"
and "enhanced its transformative power" by ensuring
a stronger focus on addressing fundamental reforms early in the
enlargement process, and has put particular emphasis on "the
three pillars of rule of law, economic governance and public administration
reform". While its 2012 Communication "introduced a
new approach to rule of law" and its 2013 Communication "set
out a framework for strengthening economic governance, drawing
on the experience of the European Semester", this year it
"sets out new ideas to support public administration reform
in the enlargement countries". These "three pillars"
are interlinked, and progress in these areas "will be key
to determining when countries will be fully ready to join the
EU".
4.18 With regard to enlargement itself, the Commission
says:
"The EU's enlargement policy contributes
to mutual benefits of peace, security and prosperity in Europe.
It reinforces the EU's political and economic strength and has
a powerful transformative effect on the countries concerned. A
well prepared accession process ensures enlargement is not at
the expense of the effectiveness of the Union."
4.19 The Commission characterises the tenth anniversary
of the accession of ten Member States in 2004 as a reminder of
the progress achieved:
"As the EU expands so do opportunities for
our companies, financial investors, consumers, tourists, students
and property owners. Accession benefited both those countries
joining the EU and the established member states. Trade and investment
have increased. The quality of life of citizens has improved as
EU environmental, consumer and other standards apply more widely."
4.20 For the countries of the Western Balkans:
"the clear perspective of EU membership
granted by the EU's Member States is a key stabilising factor.
It supports progress towards fulfilment of the necessary conditions,
including those of the Stabilisation and Association Process.
Good neighbourly relations and inclusive regional cooperation
are essential. There has been progress in this regard over the
past year, while some open issues still remain. Continuous efforts
to tackle bilateral issues among enlargement countries and with
Member States, including under UN auspices where relevant, and
overcome the legacy of the past are crucial in view of the history
of this region so recently riven by conflict."
4.21 The accession process itself is:
"rigorous, built on strict but fair conditionality,
established criteria and the principle of own merit. This is crucial
for the credibility of enlargement policy, for providing incentives
to enlargement countries to pursue far-reaching reforms and for
ensuring the support of EU citizens. For their part, Member States,
together with the EU institutions, should lead an informed debate
on the political, economic and social impact of enlargement policy."
4.22 In his Explanatory Memorandum of 20 October
2014, the Minister for Europe (Mr David Lidington) summarises
the main conclusions and recommendations of the Commission's Enlargement
Strategy, and other points of note; and then the conclusions of
the individual country Progress Reports: in addition to providing
an overall assessment of the strategy and a brief summary for
each country, the Minister also notes the Government's initial
position on the recommendations of the overall package.
4.23 In addition to welcoming the content of the
Strategy and Reports, the Minister welcomes the publication of
the Package itself as "an important tool for driving EU enlargement
policy in line with UK objectives", and sees the Strategy
and Progress Reports as providing helpful clarity on the Commission's
strategic direction for 2014-15; this, he says:
"can help to promote reform in the enlargement
countries by sending a clear message on areas that need closer
attention, whilst recognising where progress has been achieved.
In addition, it helps Member States to target their own efforts
to support the efforts of the enlargement countries where these
are most needed."
PART I: ENLARGEMENT STRATEGY AND MAIN CHALLENGES
2014-2015
4.24 After referring to the introduction (see above),
the Minister continues thus (the underlining being his; his views
being in italics):
"The introduction proceeds to a summary
of country progress. Montenegro has opened 12 Chapters
in accession negotiations, and started implementation of rule
of law reforms, but now needs to produce tangible results. Serbia
has opened accession negotiations and now needs to deliver on
its reform priorities, notably on rule of law and normalisation
of relations with Kosovo. The Commission notes the initialling
of a Stabilisation and Association Agreement with Kosovo
in July as a major milestone.
"Albania was granted Candidate Status
in June as recognition for its reform progress. It now needs to
sustain momentum and ensure political debate takes place primarily
in parliament.
"However, progress elsewhere is less pronounced.
The Commission reports that the EU accession process with Macedonia
is at an impasse. Action is needed to reverse recent backsliding,
notably on freedom of expression and independence of the judiciary.
The name issue urgently requires a solution. Government and opposition
should restore political dialogue. It also notes that Bosnia
and Herzegovina remains at a standstill. Following the elections,
the country needs to speak with one voice, to tackle urgent socio-economic
reforms and to progress its European agenda.
"The Commission notes that Turkey
has implemented certain reforms, such as the 2013 democratisation
package, and taken steps toward settling the Kurdish issue. But
there are serious concerns regarding the independence of the judiciary
and fundamental freedoms. Opening negotiations on the relevant
Chapters on the rule of law and fundamental rights would provide
a roadmap for reforms in these key areas. Meanwhile Iceland
continues to keep its accession negotiations on hold.
"In the final part of its introduction,
the Strategy notes the launch of the second Instrument for
Pre-Accession Assistance (IPA). Through IPA II, the EU will
provide €11.7 billion for the period 2014-2020 to support
enlargement countries in their preparation for accession, aimed
at the rule of law, democratic institutions and good governance,
plus socio-economic strategies in a limited number of priority
sectors. IPA II will be linked more closely to enlargement policy
priorities and based on a more results-orientated and strategic
approach. To support this, the Commission will provide Country
Strategy Papers to guide priorities and reforms, based around
a framework of pre-defined sectors. A greater focus on performance
measurement will require beneficiary countries to show clearer
progress on results."
PART II: FUNDAMENTALS FIRST - CONSOLIDATING REFORM
AND STRENGTHENING CREDIBILITY
"The strategy identifies three interlinked
priority pillars where enlargement countries need to focus their
attention: public administration reform; economic governance and
competitiveness; and the rule of law and fundamental rights. Progress
on these matters, the Commission believes, will be key to determining
countries' readiness to join the EU. The Commission concludes
that, over the past five years, it has strengthened the credibility
of enlargement policy and enhanced its transformative power through
frontloading fundamental reforms.
"In this year's strategy, the Commission
makes public administration reform (PAR) a particular focus.
PAR remains weak in enlargement countries due to poor administrative
capacity, politicisation and lack of transparency. To support
PAR, the Commission posits its own six-point work framework, and
pledges to better integrate PAR into the enlargement process through
"special groups on PAR" in Western Balkan countries,
which feed into a more structured, political discussion through
Stabilisation and Association Councils and Committees. It cites
relevant acquis Chapters — public procurement, financial
control, judiciary and fundamental rights, and taxation and economic
and monetary policy — where the EU will assess enlargement
countries' PAR efforts.
"On economic governance and competitiveness,
the Commission reiterates that none of the Western Balkan countries
are functioning market economies. The Report notes the major structural
economic challenges Western Balkan countries face, with high unemployment,
poor business environments, and low foreign investment. This is
exacerbated by weaknesses with the rule of law and public financial
management. To address this, the Commission further refines the
approach it set out last year. It puts an increased emphasis on
sectoral-type structural reforms, and sets out an annual cycle
of economic policy review for Western Balkan countries, involving
their more frequent dialogue with the Commission and greater accountability
for their economic performance.
"Drawing on recent EU experience, the Commission
has launched improved processes of cooperation with the enlargement
countries. Western Balkan countries will be asked to submit National
Economic Reform Programmes comprising two parts: the first is
an enhanced version of the existing Pre-Accession Economic Programmes
for candidate countries and Economic and Fiscal Programmes for
potential candidates. This will set out a medium-term macroeconomic
and fiscal policy framework, with increased focus on assessing
external sustainability and structural obstacles to growth, as
well as concrete reform measures to support the policy framework.
Part two will cover sector-specific structural reforms (such as
transport, energy, education, environment, research, industry,
competition, internal market) and infrastructure and investment
needs. For Turkey, a high-level economic dialogue will be established.
"The Strategy also highlights the importance
of economic governance to mitigate migratory pressures from enlargement
counties to the EU. The Commission recognises the need to address
in accession negotiations the possible need for, and nature of,
transitional controls - or "transitional measures"
as it refers to them - and/or a safeguard mechanism on the free
movement of workers. It refers to a future impact assessment that
will feed into this analysis.
"The Strategy posits energy and transport
interconnection between the EU and enlargement countries as
a priority for economic growth in the Western Balkans. It encourages
enhanced regional economic cooperation, under the Regional Cooperation
Council and through the Western Balkans Investment Framework.
The Commission calls for Western Balkan countries to set up national
investment committees or similar coordination mechanisms that
would lead to single sector project pipelines.
"The Strategy confirms that the rule
of law is at the heart of the accession process. Countries
need to build up credible track records of investigations, prosecutions
and convictions in cases of organised crime and corruption. Sentencing
should be dissuasive, and assets acquired through criminal means
should be confiscated. The Commission stresses the challenges:
corruption, particularly in public procurement and in privatisation;
and organised crime - for example providing law enforcement
bodies and prosecution services with effective legal and investigative
tools. It calls for enhanced regional and international cooperation
to deal with the cross-border activity of organised crime groups.
"The Strategy sets out how the New Approach
to Chapters 23 (judiciary and fundamental rights) and 24 (justice,
freedom and security) involves processes that support reform:
through increased leverage over enlargement countries at more
junctures, and via a longer timeline. Progress under these Chapters
will need to be made in parallel with progress in negotiations
overall. The Commission recalls the existence of the 'overall
balance' clause of the Negotiating Frameworks and the possibility
of pausing negotiations on other Chapters if progress on rule
of law issues lags behind.
"The Strategy notes the disparity between
fundamental rights, largely enshrined in the legal framework
of the enlargement countries, and their full respect in practice.
Freedom of expression and media remains a particular concern.
Minority rights need better protection. Discrimination and hostility
towards vulnerable groups, including on grounds of sexual orientation,
remains of concern. Further work is required to promote the rights
of women, including tackling domestic violence, and of children
and the disabled. The Commission strongly encourages candidate
countries' participation in EU frameworks to learn best practice,
and to develop more robust institutional frameworks and human
rights institutions - including national Ombudsmen, whose recommendations
too often go unheeded.
"The strategy notes that, to support the
reform process, strengthening the functioning and independence
of key democratic institutions in the enlargement countries
is essential. This includes ensuring constructive and sustainable
political dialogue, notably in parliament. It calls for more to
be done to foster an enabling environment for civil society organisations,
to enhance political accountability and promote deeper understanding
of accession related reforms."
PART III: REGIONAL AND BILATERAL ISSUES AND OVERCOMING
THE LEGACY OF THE PAST
"In this section, the Strategy reaffirms
that good neighbourly relations are an essential element
of the Stabilisation and Association Process. The Commission calls
for continued efforts to overcome the legacy of the past, foster
reconciliation and tackle bilateral disputes among enlargement
countries and with Member States. Bilateral issues should be addressed
by the parties concerned as early as possible and should not hold
up the accession process, which should be based on established
conditionality.
"The strategy concludes that regional
cooperation has been further strengthened over the past year.
The increasing inclusion of Kosovo in regional initiatives has
been positive. The Commission notes examples of progress across
the region, such as on war crimes and refugee return, and lauds
the EU and regional response to the floods in BiH and Serbia in
May. To support the efforts of enlargement countries, the Commission
pledges to continue to offer political support and facilitation
to all countries concerned, and to actively support the efforts
in other fora, including the 'Berlin process' which began with
a Summit there in August.
"The Government welcomes the Commission's
approach to the EU enlargement strategy, as set out in Part I,
as broadly in line with the UK's own approach.
"The Government continues to be a leading
proponent of a conditions-based, firm-but-fair approach to EU
enlargement. It supports further enlargement to all of the countries
of the Western Balkans and Turkey when conditions have been met.
It believes that enlargement has been an historic success for
the EU and remains in the UK's national interest as a means to
extend greater stability, security, and prosperity to the region.
It also provides a powerful lever to encourage cooperation and
reforms in areas that impact directly on the UK, more effectively
than if the UK acted unilaterally - such as tackling organised
crime and corruption. Furthermore, support for enlargement is
in line with the Government's vision of a more open, flexible
Europe.
"The UK plays a leading role within the EU,
with our like-minded partners and the enlargement countries, to
ensure that countries proceed fairly and on merit when they make
the required progress. Accession can only be agreed when a candidate
country has met in full all the political, economic and acquis
conditions of membership. This approach, based on the application
of firm but fair conditionality, is vital to ensure the continued
success and credibility of the enlargement process.
"The Government believes that the Commission's
Strategy provides a fair and balanced assessment of progress and
challenges in EU enlargement countries and of the enlargement
process itself. It is closely aligned with the Government's priorities
on enlargement, highlighting the importance of addressing the
fundamentals first and the need for firm but fair conditionality.
It focuses correctly on the central challenges of the rule of
law, judicial reform and the fight against organised crime and
corruption; economic governance and competitiveness; the importance
of strengthening democratic institutions and public administration
reform, and protecting fundamental rights; and the need for good
neighbourly relations and dispute resolution. These are addressed
in turn below.
"The Government welcomes the emphasis on
public administration. This is key for the successful implementation
of reforms and for applying EU rules and standards, but also in
order to underpin economic and rule of law reforms. The Government
believes enlargement countries need to make further progress on
professional, effective, independent and accountable public administration.
It will be attentive to the incorporation of public administration
reform principles in relevant Chapters of the accession negotiations
ahead, and in doing this will enlist specialists, for example
on public procurement.
"The Government welcomes the rule of law
continuing to be at the heart of the accession process. The development
of Action Plans under the rule of law Chapters allows for clear,
identifiable actions to meet the Commission's recommendations.
The Strategy helps set enlargement countries' expectations that
their performance will be judged on sustained implementation and
enforcement of reforms, not just the passage of legislation. The
Report's coverage of countering corruption is largely satisfactory,
although the Government believes greater focus is required on
cultural, institutional and procedural reforms in enlargement
countries. The Government also believes anti-corruption measures
need more momentum. For example, corruption can weaken enlargement
countries' ability to protect borders and enforce the law, thereby
hampering bilateral co-operation on tackling illegal migration.
"On organised crime, the Government
is reasonably satisfied that the Strategy gives due weight to
action needed in enlargement countries to tackle organised crime
that matters to the UK. The Government would have welcomed mention
of the importance of tackling cigarette smuggling (in Montenegro,
particularly) and VAT fraud. It agrees with the Commission on
the importance of financial investigations, tackling the proceeds
of crime, intelligence-led policing practices, and regional and
international engagement. The Government also believes accession
countries should be contributing more from their own budgets for
regional JHA activities, rather than continue to rely on external
funding only.
"The Government welcomes the call for enlargement
countries' consolidated efforts to tackle illegal migration
and improve border management. These are particular Government
priorities on which it wishes to see greater activity and enforcement
in enlargement countries. The Government welcomes the focus on
human trafficking, but noted through the Reports less progress
in tackling it in Montenegro, Macedonia and Kosovo than in the
other countries. Moreover, the Government would like to see the
absence of laws against trafficking of minors addressed, and continued
development of asylum and national referral systems in line with
EU standards.
"The Government welcomes the Commission's
refinement of mechanisms for economic governance,
setting out more clearly the Commission's more rigorous surveillance
of, and timely advice to, enlargement countries, though without
imposing new conditionality. The Government agrees that it is
right that enlargement countries take early and sustained steps
to "tackle the economic fundamentals first", improve
public financial management, implement structural reforms and
increase competitiveness. The Government sees priority areas as
public financial management, competitiveness and de-politicisation
of decision-making, labour market flexibility, anti-corruption
and reduction of administrative burdens for businesses.
"The January reporting deadlines for enlargement
countries to provide action plans under the National Economic
Reform Programme cycle might prove, initially, an administrative
challenge for some countries, but the Government welcomes the
enhanced process. It also welcomes the enhanced bilateral dialogue
that the Commission is seeking with enlargement countries and
look forward to working with EU partners to make existing economic
conditionality more effective.
"The Government particularly welcomes the
Commission's reference to assessing the need for, and nature of,
future reform of transitional controls - or "transitional
measures" as the Strategy refers to them - on free movement
of workers. As the Prime Minister said in his Financial Times
article on 26 November 2013, free movement is a central principle
of the EU, but it cannot be a completely unqualified one. The
Government wants to work with partners to return the concept of
free movement to a more sensible basis. It has started a debate
on this issue in Europe and expects discussion of potential reform
this autumn, with the issue of transitional controls being addressed
at the General Affairs Council in December. The Government believes
progress on this issue is vital if public confidence in and support
for enlargement is to be maintained. Otherwise there is a risk
that the process could grind to a halt.
"The Government welcomes the Commission's
focus on connectivity in the energy and transport sectors
in the Western Balkans. It considers south-east Europe as strategically
important for increased diversity of gas supply routes and sources
over the longer term. The Government agrees with the Commission
that further development of trans-European energy infrastructure
and cooperation with the Energy Community is essential. Stronger
implementation and enforcement of Energy Community legislation
should strengthen regional energy security, and address the key
fact that the lack of infrastructure is the main constraint on
growth. The Government would note too that investors want greater
clarity and transparency in the rules that apply in the Western
Balkans and more confidence in the rule of law there to be able
to invest.
"The Government agrees with the Commission
that the EU's cooperation with Turkey would benefit the energy
security of the EU and the wider European neighbourhood. The UK
supports Commission's aim of strengthening EU-Turkey energy cooperation.
"The Government notes the concerns expressed
by the Commission in the individual country Progress Reports about
the lack of development of both rail systems and legislative
frameworks, through lack of resources. It would wish these issues
to be substantially resolved before countries join the EU.
"The Government welcomes the Commission's
sustained focus on the need to ensure the proper functioning of
institutions guaranteeing democracy. This includes functioning
democratic politics, independent democratic institutions and protection
of media freedoms, particularly given the downward trend in some
enlargement countries on the latter. It welcomes the encouragement
given to enlargement countries to strengthen the role of, and
engagement with, civil society organisations. Indeed the Government
would like to see it extended to a broad range of alternate voices
in politics where they have legitimate grievances to raise. This
underlines the need for the EU's democratic values to be measured
more broadly rather than just by the holding of successful elections.
"The Government also agrees with the Commission's
assessment on the importance of protection of the rights of
minorities. It is important that reforms in this area, aimed
at ensuring countries develop fully-functioning democratic societies,
are driven not just by the requirements of EU membership but also
by the recognition of the significant benefits to individual citizens.
If harnessed effectively, this may also help to provide a level
of public pressure and support to enable reforms to continue and
overcome domestic political barriers.
"The Government concurs with the Commission's
view that every effort needs to be made to prevent the importing
of significant bilateral disputes into the EU and the consequent
holding up of the accession process. Parties must ensure that
any disputes between them do not have a detrimental effect on
their shared goal of progress towards EU membership. The Government
also supports efforts on regional reconciliation and agrees
that political and other leaders need to show greater responsibility,
perpetrators need to be held to account for war crimes, and more
concerted regional action is needed to address legacy issues of
refugees, Internally Displaced Persons and minorities.
"Lastly, the Government welcomes the launch
of financial assistance through the new IPA-II framework
and the linking of its focuses to priorities identified in the
Strategy. It is a strong supporter of EU Assistance programmes
such as IPA and Twinning. Alongside national assistance programmes,
EU programmes have provided vital, practical help to aspirant
countries to meet the requirements of EU membership. The
Government believes the emphasis of a sector-based approach being
adopted in IPA II is a positive step. This should help with coordination
between development agencies. It should also result in better
ownership among the beneficiary countries, due to more clearly-defined
performance measurements and efficiencies in Member States as
work will be towards a common policy framework."
PART II: COUNTRY PROGRESS REPORTS
"The Government welcomes for consideration
the specific proposals that the Strategy brings forward on each
enlargement country. The Government is not at this stage taking
a final view on these proposals — its position will develop
as it approaches the December General Affairs Council and European
Council. This allows the Government to consult with stakeholders
and partners on the specific proposals concerned. The Government
does, however, outline its initial view on country-specific proposals
in the individual country sections below.
ALBANIA
"Following the granting of Candidate Status
to Albania in June, the Report states that further progress has
been made towards fulfilling the political criteria but Albania
needs to consolidate the momentum of reform. Joint Working Groups
were established in September 2014 for the remaining five Key
Priorities, covering public administration reform, judicial reform,
tackling corruption, tackling organised crime and protecting human
rights. These will structure
the work on reform, but there is a need for a constructive political
dialogue between the Albanian government and opposition to drive
it forward.
"Political Criteria
"Democracy and Rule of Law: The Albanian
government has energetically pursued the process of reform since
elections in June 2013, however a tense political climate has
impinged on parliamentary work resulting, since July, in the opposition
boycotting parliament. The Report makes clear that a constructive
and sustainable dialogue between government and opposition is
vital to the sustainability of reform. In Public Administration
Reform, a new Civil Service Law has been adopted. Implementation
needs to be pursued to strengthen depoliticisation, accountability
and professional standards.
"Albania has also taken steps towards reform
of the judiciary but the Report makes clear that more needs
to be done to implement the Venice Commission's recommendations
with substantial efforts to ensure the independence, efficiency
and accountability of the judiciary, including through constitutional
amendments. The Report makes clear that the Albanian government
has made substantial efforts to tackle organised crime and
corruption. On the former there has been an intensification
of law enforcement activities including on drug seizures and tackling
human trafficking. International cooperation has also been strengthened
with an agreement with Europol. The government has also shown
the political will to act decisively in the fight against corruption,
for example through the creation of a National Coordinator. However
Albania needs to develop a track record of convictions against
corruption and organised crime to prevent its infiltration into
the political, legal and economic system. The Commission recognises
that more needs to be done on tackling trafficking, money laundering
and in migration and asylum policy.
"Human Rights and Protection of Minorities:
The Report makes clear that fundamental rights are generally respected
in Albania, but although there has been an improvement in cooperation
between the state and civil society on LGBT matters, gender discriminatory
legal provisions need to be removed and the institutional capacity
for child protection should be strengthened. Albania also needs
to implement measures to enhance Roma inclusion and protect vulnerable
groups.
"Regional issues and international obligations:
Albania has shown positive regional cooperation and good neighbourly
relations.
"Economic Criteria
"The Report makes clear that Albania has made
some progress towards becoming a functioning market economy provided
that it accelerates structural reforms. The Commission recommends
Albania pursue fiscal consolidation with a view to reducing public
debt. Obstacles to private sector development should also be removed
by improving the business environment which is characterised by
deficiencies in rule of law, weakness in the regulatory framework
and uncertainty over property ownership. The Commission also states
that creating favourable conditions for private investment and
in particular Foreign Direct Investment is essential for diversifying
the narrow production base.
"Ability to Take on the Obligations of Membership
"The Report states that the Stabilisation and
Association Agreement continues to be smoothly implemented.
Albania has continued aligning its legislation to EU requirements
to enhance its ability to take on the obligations of membership.
It has a new National Plan for European Integration for 2014-2020,
however Albania needs to make substantial efforts to prepare for
implementing the acquis. The capacity of bodies charged
with the implementation of the acquis needs to be strengthened
and the independence of regulatory bodies safeguarded.
"The Government welcomes the Progress Report
and agrees that the Albanian government has made progress in its
fight against organised crime and corruption. However, it also
agrees that the Albanian government needs to sustain the process
of reform and in particular put substantial effort into further
judicial reform to underpin other activity. It is vital to establish
a track record of prosecutions and convictions of criminal activity
and corruption. The Government has detailed concerns with regard
to human trafficking and migration pressures from Albania and
has emphasised that more needs to be done to improve effective
border controls. As set out in the June GAC conclusions, Albania
needs to intensify its efforts to ensure a sustained, comprehensive
and inclusive implementation of the key priorities, notably the
reform of the public administration and the judiciary, the fight
against organised crime and corruption, the protection of human
rights and anti-discrimination policies. The Government also supports
the Commission's call on both the Albanian government and the
opposition to develop a constructive and sustainable political
dialogue to assist the reform process.
BOSNIA AND HERZEGOVINA
"The Commission assesses that little to no progress
has been made in the last year. The Report regrets the lack of
collective political will by Bosnia and Herzegovina's leaders
to make the reforms necessary for EU progress and their failure
to implement conditions allowing the entry into force of the Stabilisation
and Association Agreement.
"Serious concerns flagged by the Report are:
the lack of a co-ordination mechanism for EU interaction to allow
the country to speak with one voice on EU-related issues; the
failure to resolve blockages related to the European Court of
Human Rights' ruling on Sejdic-Finci, despite Commissioner Fule's
facilitation efforts; and the need to re-engage in constructive
discussions with the EU to reach an agreement on the technical
adaptation of the Interim Agreement to the Stabilisation and Association
Agreement as a matter of urgency.
"Political Criteria
"Democracy and Rule of Law: There has
been no tangible progress in improving the functionality and efficiency
of all levels of government. The complicated decision-making process,
lack of shared vision and weak cooperation between the various
levels of government have delayed structural reforms. The Report
highlights that, following the socio-economic protests in February,
Bosnia and Herzegovina needs as a matter of priority to focus
on addressing socio-economic grievances and to assist those in
need after the May floods.
"There has been some progress in legal reforms
- access to justice has moderately improved, some progress has
been made on efficient handling of domestic war crimes cases and
there has been steady progress on witness protection measures.
Whilst there was little progress on judicial system reform, the
EU's Structured Dialogue on Justice remains an important platform
to consolidate consensus on judicial reforms and has been broadened
to other rule of law matters. Although there have been some successes
in the fight against organised crime, it remains an issue of serious
concern.
"Human Rights and the Protection of Minorities:
The Report concludes that the legal and institutional framework
for the observance of human rights is in place but implementation
needs to improve. There needs to be more effort to make schools
inclusive and to ensure children's right to education throughout
the country. The anti-discrimination law needs to be amended to
include additional categories and effective prevention and investigation
of discrimination against in particular LGBTI persons needs to
be ensured. Minorities continue to be excluded from representation
in high office. Very good progress has been made in addressing
the housing needs of Roma. Whilst there have been some improvements
with regard to discrimination against Roma, this continues to
be widespread. The sustainable return of refugees and internally
displaced persons continues to be hampered by gaps in legislation
and difficulties in access to social rights for returnees.
"Regional Issues and International Obligations:
Bosnia and Herzegovina has continued to participate actively in
regional cooperation and to maintain good neighbourly relations.
Cooperation with the International Criminal Tribunal for the former
Yugoslavia continues to be satisfactory in most areas. There is
good co-operation on refugees and internally displaced persons.
However greater political commitment and renewed efforts are required
to resolve the fate of missing persons from the conflicts in the
1990s. Remaining border and property issues with neighbouring
countries need to be addressed. Cooperation with the International
Criminal Tribunal for the former Yugoslavia continues to be satisfactory
in most areas.
"Economic Criteria
"The Report concludes that no progress has been
made towards creating a single economic space within the country.
The privatisation process has stalled. Unemployment remains persistently
high. The short-term outlook for the economy deteriorated after
the May floods. The EU responded to the concerns of the Bosnian
population by launching the Compact for Growth initiative in May
2014 which identified key economic policy issues that needed to
be worked on.
"Ability to Take on the Obligations of Membership
"There has been limited progress on free movement
of goods and none on free movement of capital. Some progress was
made in customs legislation, on competition, public procurement
and intellectual property rights. There has been very limited
progress on employment and social policies and little progress
on education. On the justice, freedom and security Chapter, there
was some progress on visa policy, policing and the fights against
money laundering, drug trafficking, organised crime and terrorism.
"The Government welcomes the Commission's
assessment on Bosnia and Herzegovina. The Government agrees that
there has been little or no progress on reforms. It agrees that
there must be much greater efforts to implement reforms. It welcomes
the Commission's three new initiatives taken in response to public
calls for change and confirms its strong support for the Commission's
efforts to secure reforms. This period, following the 12 October
elections, is a key opportunity to encourage rapid formation of
a new Bosnian government and then to support the newly-elected
government in undertaking reforms which meet the people's needs
and gets the EU process back on track.
KOSOVO
"The Report highlights Kosovo's progress in
several areas, including two successful elections, Kosovo's institutional
capacity to coordinate work on its EU integration agenda and continued
engagement in and commitment to the Kosovo/Serbia Dialogue. The
initialling of a Stabilisation and Association Agreement between
Kosovo and the EU this year was a major milestone in EU-Kosovo
relations. However, the Report highlights the need for further
progress in a number of other areas.
"Political Criteria
"Democracy and Rule of Law: The Report
commends Kosovo for free, transparent and well-organised local
and general elections, for the first time including the four municipalities
in northern Kosovo. Whilst there were fewer electoral fraud cases,
Kosovo still needs comprehensive electoral reform, and
to adopt recommendations from election observation missions and
experts.
"Co-operation with the EULEX rule of law mission
has continued, demonstrated by Kosovo's further political commitment
to the extension of EULEX's mandate, also paving the way to establishing
a special court to adjudicate the findings of the Special Investigative
Task Force. Kosovo's judicial authorities have coped well with
structural challenges and the transfer of some EULEX functions
to local authorities. But, the backlog of cases and ensuring impartial,
independent justice remains a challenge. Kosovo continues to make
slow progress in the fight against organised crime and corruption
but needs to be able to demonstrate practical results in this
area. The number of convictions and asset-confiscations is low
and law enforcement agencies are reluctant to initiate financial
investigations. The Report expresses concerns about judicial impartiality
and the very limited progress in improving public administration.
"Human Rights and Protection of Minorities:
The Report notes that the Independent Media Commission is operational
again. But threats and attacks on LGBT activities and on journalists
continue. Conditions for freedom of expression need to be put
in place. The Implementation and Monitoring Council has facilitated
improved protection of cultural and religious heritage. However,
Kosovo needs to increase efforts on the implementation of legislation
on integration of the Roma, Ashkali and Egyptian communities and
on the historic centre of Prizren and Velika Hoca e Madhe.
"Regional Issues and International Obligations.
The Report finds that Kosovo has remained engaged in and committed
to the Serbia/Kosovo Dialogue and there have been some irreversible
changes on the ground, including the dismantling of police and
justice structures. Whilst there have been no high-level meetings
since Kosovo's June elections, work has continued at the technical
level, leading to progress in the areas of customs collection,
integrated border management, energy and telecoms.
"Economic Criteria
"The Report concludes that Kosovo has made limited
progress. Growth remains positive at 3.4% but labour market
conditions remain very poor. Macroeconomic stability was broadly
preserved despite significant, pre-election increases in expenditure,
in particular on wages and pensions. Decisions on large infrastructure
projects should be based on proper cost-benefit evaluations. Kosovo
must swiftly address obstacles arising from weak administrative
capacities, politicised public companies and agencies, difficult
access to finance and lengthy and complex privatisation procedures.
"Ability to Take on the Obligations of Membership
"Kosovo's institutions have demonstrated their
capacity to deliver on some political priorities, such as the
Stabilisation and Association Agreement negotiations, the visa
liberalisation dialogue and the Dialogue with Serbia and has made
good progress in these areas. However, delivery of results in
other reform areas, for example competition policy or protecting
the environment, has been uneven. The Report highlights the need
for political commitment to public administration reform.
"The Government welcomes the Commission's
assessment of Kosovo's progress. It agrees, however, that whilst
significant progress has been made in some areas, further efforts
are required, in particular on the implementation of legislation,
the strengthening of administrative capacity, and on developing
impartial and well-trained judicial and prosecutorial services.
There must be a clear political will to fight organised crime
and corruption, which are holding the country back and have contributed
to the failure to make progress on improving governance, rule
of law and crucial longer-term socioeconomic issues. This entails
co-operation with key international parties such as EULEX.
"The Government is concerned by the continuing
impasse following the June elections. Kosovo's leaders and institutions
have an urgent responsibility to form a new government to avoid
the risk of delays to Kosovo's Stabilisation and Association Agreement,
damage to Kosovo's reputation, and a slowing down of progress
in the Dialogue with Serbia. The government will continue to monitor
the situation closely and, once a new Kosovo government is in
place, will encourage and support renewed
efforts on reform.
MACEDONIA
"The Commission reports that, given the cumulative
progress that Macedonia has achieved, it continues to meet the
political criteria and maintains a high level of alignment with
the Acquis. The Commission maintains its 2009 recommendation to
begin accession negotiations. However it not only calls for decisive
action to address the name issue but also notes the backsliding
in some areas. The drafting implies that without these being addressed,
the recommendation may be withdrawn next year. Although Macedonia
continues to make good progress in many areas, the country's high
level of legislative advances are overshadowed by an increasingly
divisive political culture, political interference in state institutions,
lack of capacity in public administration, poor implementation
of legislation, and fragile inter-ethnic relations.
"Political Criteria:
"Democracy and Rule of Law: The government
of Prime Minister Gruevski was re-elected in April 14 in elections
the OSCE judged to be well administered. However, the Report notes
that a lack of separation between party and state has led to an
erosion of trust. The consequent lack of dialogue between parties
has led to another political crisis and an opposition boycott
of parliament. The main political parties on all sides have made
insufficient efforts to engage in constructive political dialogue.
"Public administration in Macedonia continues
to be politicised and the Report states that the principles of
transparency and accountability have not yet been fully applied.
Similarly in the justice sector, the independence and competence
of the courts needs to be improved and there is a concern that
legislative advances are overshadowed by the selective application
of justice. The Commission comments that, as in previous years,
corruption also remains prevalent. However, there have
continued to be good improvements in police cooperation
and the tackling of organised crime and human trafficking. The
Report states that efforts should continue to build up a track
record of convictions against organised crime and corruption.
"Human Rights and Protection of Minorities:
The Report makes clear that, whilst the framework for fundamental
rights is in place, far more focus is required to ensure implementation.
More efforts are needed to address discrimination against Roma
and more should be done to counteract intolerance of LGBT minorities.
The Report emphasises that there has been a deterioration in media
freedom, with indirect government control of the media through
state financed advertising, and a scarcity of independent media
reporting in Macedonia. In terms of inter-ethnic relations, a
lack of trust between communities continues. Tensions can easily
be sparked by misinterpretations of events or incidents. The Commission
reports that there is a need for a more proactive approach to
promoting an inclusive multi-ethnic society. A review of the Ohrid
Framework Agreement which ended the 2001 conflict needs to be
completed and its recommendations implemented. In particular,
the Report stresses the need for improvement in non discrimination,
fair representation and use of languages and education.
"Regional Issues and International Obligations:
The Report states that Macedonia maintains good neighbourly relations
and an active role in regional cooperation, but actions and statements
which negatively impact such relations need to be avoided. The
Commission calls for decisive steps to be taken towards resolving
the "name issue" with Greece which, it says, is having
a direct and adverse effect on the country's European aspirations.
The Commission believes that if discussions on the negotiating
framework for accession negotiations were allowed to proceed,
the conditions could be created for a mutually acceptable solution
to the name issue. The Commission also draws attention to the
role of the Council and EU leaders in driving this forward.
"Economic Criteria
"The Report says that Macedonia remains well
advanced and in some areas has made further progress towards a
functioning market economy. Macedonia has seen 2.9% growth in
GDP, but this has not helped the unemployment situation which
is high (29%). To tackle this, the labour market needs to be reformed,
the business environment needs to be improved, and more work is
needed on fiscal discipline and transparency. The Report notes
there has been a renewed deterioration of fiscal discipline and
the quality of public spending should be improved with a shift
towards growth-enhancing investments.
"Ability to Take on the Obligations of Membership
"The Report concludes that Macedonia continues
to fulfil its commitments to the Stabilisation and Association
Agreement and it is at an advanced stage of legislative alignment,
which is sufficient to proceed to beginning accession negotiations.
"The Government welcomes the Progress Report
on Macedonia and agrees with its assessment that, given its cumulative
progress over several years, it continues to meet the political
criteria. That positive recommendation is increasingly overshadowed
by serious concerns over lack of political dialogue, politicisation
of institutions and services, and media freedom. Over the coming
year, all stakeholders in Macedonia should make efforts to resolve
its political crisis, increase the space for independent voices,
and develop a joint approach to a multi-ethnic society. The Government
continues to believe that the best way to address these concerns
is through the opening of accession negotiations and the scrutiny
of individual Chapters. It also agrees with the Commission's recommendation
that the name issue should not be a block to beginning discussions
on the negotiating framework.
"Montenegro
"The Report finds that Montenegro has continued
to make progress in accession negotiations and the screening process
was completed in May. Twelve Chapters have now been opened, including
key rule of law Chapters 23 and 24. Despite this progress, further
improvement is still required.
"Political Criteria
"Democracy and Rule of Law: The Report
states that the government has continued to show its commitment
to EU accession. Election legislation has improved but further
efforts are needed to address remaining international recommendations
and build public confidence. The adoption of new parliamentary
rules of procedure and appointments in key judicial and prosecutorial
positions, including a new Supreme State Prosecutor, are positive
steps. However parliament's administrative capacity still needs
to be strengthened and the government needs to do more to improve
transparency.
"Implementation of Action Plans on Chapters
23 and 24 has begun but progress has been slower than expected.
Reforms in judicial recruitment are still incomplete and the efficiency
of the judiciary needs to increase. The political and judicial
follow up on high level corruption cases has been disappointing.
More generally, on organised crime and corruption, Montenegro
needs to strengthen its legislative framework, increase capacity
of institutions, improve coordination and develop a track record
of successful prosecutions.
"Human Rights and Protection of Minorities:
The Report finds that Montenegro continues to respect international
human rights instruments and is gradually familiarising itself
with reporting mechanisms. Amendments to its Law on the Ombudsman
bring it closer to European standards, although they have weakened
its role on discrimination cases. Gaps remain between legal alignment
and practice and the capacity of institutions in charge of the
protection of rights needs to be strengthened. Concerns remain
about media freedoms. Some progress has been made in investigations
into violence against journalists, but there have also been new
cases and investigations need to be accelerated.
"Regional Issues and International Obligations:
The Report concludes that Montenegro continues to play an active
role in regional cooperation and maintains good relations with
its neighbours. However, it needs to align itself with EU positions
relating to bilateral immunity agreements.
"Economic Criteria
"The Report finds that Macroeconomic stability
has improved slightly as the economy continues to recover from
the 2012 recession - GDP growth in 2013 was 3.3%. However, despite
consolidation efforts, problems remain with the fiscal imbalance.
Youth and long term unemployment are high, whilst economic diversification
and competitiveness are weak. Uncertainties in the legal and judicial
system are a hindrance to foreign direct investment. Further economic
reforms and efforts to tackle corruption are essential to improve
the business environment and address unemployment.
"Ability to Take on the Obligations of Membership
"The Report says that Montenegro has made some
further progress. Twelve Chapters, are now open, and two (science
and research, and education and culture) are provisionally closed.
"However, uneven progress since opening Chapters
23 and 24 is a concern. As the first country to open these rule
of law Chapters under the New Approach, the Report believes that
it is essential that Montenegro makes progress against interim
benchmarks to keep the overall pace of negotiations on track.
"The Government agrees with the Commission's
assessment of progress and on the areas where further improvement
is needed. Montenegro has continued to show its commitment to
EU accession, but the Report rightly highlights the need to deliver
tangible results on key rule of law Chapters to maintain the pace
of progress through negotiations. This will require strong political
commitment and sustained efforts in the year ahead.
SERBIA
"The Report states that the EU reached a 'turning
point' in its relations with Serbia with the start of accession
negotiations in January. The screening process is well underway
and is expected to be completed in 2015. Serbia must focus on
delivering on its reform priorities, including the rule of law,
and enter a new phase in the normalisation of relations with Kosovo.
"Political Criteria
"Democracy and Rule of Law: The Report
says that the new government has demonstrated strong commitment
to EU accession. Serbia has adopted a comprehensive strategy on
administrative reform and established a Secretariat for Public
Policies. It needs to focus on implementation and instil mechanisms
to move towards greater transparency. The Serbian government and
parliament need to improve their relationships with independent
regulatory bodies, including by following up on their findings.
Serbia has taken the first steps on implementing its national
strategies on judicial reform and the fight against corruption.
It must continue with implementation and strengthen the independence
of the judiciary, including by adopting legislation on free legal
aid and whistle-blowers. Serbia needs to develop comprehensive
action plans for the rule of law Chapters 23 and 24, and build
a track record of concrete results in tackling organised crime
and corruption.
"Human Rights and Protection of Minorities:
The Report finds that the legislative framework for protection
of human rights and minorities is generally in place. The holding
of a Pride Parade without major incident was a significant step,
but the Serbian government still needs to do more to ensure that
rights are consistently respected in practice and vulnerable groups
protected. There are concerns over deteriorating conditions for
freedom of expression in the media. The adoption of three new
media laws is positive but they need to be implemented and the
government must do more to create an environment for full freedom
of expression to be exercised.
"Regional Issues and International Obligations:
The Report says that Serbia remains committed to regional cooperation
and to the EU-facilitated dialogue with Kosovo. It generally complies
with its international obligations, and continues to engage constructively
with neighbouring countries. However, progress on normalisation
with Kosovo has slowed in 2014 following elections in both countries.
Serbia needs to focus on implementing outstanding elements of
the April 2013 normalisation agreement and to be ready to move
forward in the Dialogue with Kosovo once a new government is established
there.
"Economic Criteria
"Serbia's economy remains weak and continues
to face structural problems, high fiscal imbalances and unemployment.
State presence in the economy remains significant and the private
sector is weak. But the economic structure is slowly changing
and the government has made a strong commitment to economic reform,
including increasing competiveness and reducing the deficit. It
now needs to accelerate implementation and make significant efforts
to strengthen fiscal consolidation.
"Ability to Take on the Obligations of Membership
"Serbia has continued with efforts to align
its legislation to EU requirements in many fields. This has included
some progress on free movement of goods, public procurement, company
law and taxation. However, progress on Chapters 23 and 24, has
been limited and Serbia's alignment with EU foreign and security
policy declined significantly compared to previous years. Serbia's
Stabilisation and Association Agreement entered into force in
October 2013, and Serbia has continued to build a satisfactory
record in implementing its obligations.
"The Government welcomes the Commission's
assessment. Reaching the milestone of opening accession negotiations
was testament to the progress that Serbia has made on reforms,
and its normalisation of relations with Kosovo. Serbia has made
a positive start to negotiations during what has been a challenging
year, with disastrous floods and a difficult economic background.
The Government agrees with the assessment of progress on key reforms
and welcomes the focus that the Progress Report place on the challenges
ahead. Negotiations will be demanding and will require a sustained
effort from Serbia over a long period. Effective implantation
of economic and rule of law reforms will be key, and Serbia must
continue to make progress in its relation with Kosovo. The Government
also remains concerned about Serbia's ongoing failure to align
itself to EU positions on Ukraine.
TURKEY
"The Report recognises where Turkey has made
progress over the past year, through continuing progress towards
a settlement of the Kurdish issue, the further implementation
of reform packages and broader foreign policy cooperation - including
through continued Syrian humanitarian assistance. In light of
challenges in Turkey's immediate neighbourhood, the Report notes
the increasing strategic importance of Turkey as a foreign policy
partner. The Progress Report also notes several areas of concern,
particularly over the protection of fundamental rights and the
independence of the judiciary. Periodic social media bans focused
attention on freedom of expression. The strength of the Turkish
economy and significance as an energy partner for the EU is also
given prominence.
"Political Criteria
"Democracy and Rule of Law: The Report
restates the EU's commitment to an active and credible accession
process, to achieve the full potential of EU-Turkey relations.
Progress made on the EU Readmission Agreement and Visa Liberalisation
dialogue has created a new momentum in relations, further strengthened
by the publishing of Turkey's EU Strategy. It further notes the
importance of opening negotiations on the relevant Chapters on
rule of law and fundamental rights, to provide a roadmap for reforms
in these key areas.
"The Commission welcomes the continuing implementation
of the third and fourth Judicial Reform packages as well as the
Democratisation Package of September 2013. The Report recognises
important steps aimed at aligning Turkey's legal framework and
practice with European Court of Human Rights case law. The performance
of the Constitutional Court was of particular note among enlargement
countries, as having strengthened the protection of fundamental
rights and exemplifying the resilience of Turkey's constitutional
system.
"However, the Commission highlights the response
of the Turkish government towards corruption allegations as raising
serious concerns over independence of the judiciary and rule of
law. In particular the widespread dismissals or reassignments
of judges, prosecutors and police officers raised concerns over
the independence of the subsequent investigations. The Report
calls for the ongoing investigations to be impartial and transparent.
"The Report calls for greater EU engagement
to promote dialogue across the political spectrum and civil society,
to overcome the increased polarisation of the political landscape.
In the fight against organised crime and human trafficking, the
Report assesses that Turkey has made progress, particularly in
countering the financing of terrorism. The Report highlights several
areas where Turkey could further align with EU standards in these
areas.
"Human Rights and Protection of Minorities:
The Report calls for substantial efforts to guarantee minority
rights, including the rights of women, children and LGBTI individuals.
The adoption of a law to bring a stronger legal foundation to
talks aimed at finding a solution to the Kurdish issue, continued
the sustained progress in this area of recent years. The Report
notes the continued implementation of the 2013 Democratisation
Package, which promotes the protection of minority rights, including
through expanded Kurdish language rights and greater recognition
of religious minorities. Further work is needed to ensure full
respect for all property rights, including those of religious
minorities.
"Regional Issues and International Obligations:
On Cyprus, the Report welcomes Turkey's support of the resumption
of fully-fledged settlement talks. The Report calls on Turkey
to implement the Additional Protocol to the Association agreement
(also known as the 'Additional Ankara Protocol', allowing Cypriot
vessels into Turkish ports and airports), and to normalise relations
with the Republic of Cyprus.
"Economic Criteria:
"In contrast to the Western Balkan enlargement
countries, Turkey is identified as having a functioning market
economy. The Report also highlights that the Turkish economy should
be able to cope with competitive pressure and market forces within
the union. A regular EU-Turkey high level economic dialogue is
encouraged. The Report notes that, despite the slowdown in 2012,
output and employment have increased. Unemployment has risen as
a result of a rapidly expanding labour force. Inflation has continued
above the central bank's targets, and the Report calls for monetary
policy to focus on price stability.
"Ability to Take on the Obligations of Membership
"The Report identifies a number of areas where
legislation needs to be more closely aligned with
EU standards, including legislation concerning the right to freedom
of assembly. The unclear definition of legislation concerning
membership of armed organisations continues to result in a large
number of arrests and must be addressed. The Report complements
the entry into force of the Law on Foreigners and International
Protection which enhanced Turkey's alignment with the migration
aspects of Chapter 24 (justice, freedom and security).
"The Government welcomes the Commission's
assessment and agrees that whilst progress has continued in a
number of important areas, the serious concerns raised in the
Report over recent legislation covering the rule of law and fundamental
rights need to be addressed. The Government agrees with the Commission
that the EU accession process remains one of the most important
drivers of reform in Turkey and has contributed to the significant
progress achieved over the past decade. Continued momentum, particularly
on Chapter 23, is necessary to further support efforts in Turkey,
especially in light of the Turkish Government's renewed commitment
to the accession process through the publication of their 'European
Union Strategy'. Alongside the Commission, it encourages Turkey
to pursue this positive approach, with concrete actions and timelines,
as part of its National Action Plan for Turkey's EU Accession
Process.
"The Government will continue to support
the Commission's efforts to progress Turkey's accession process,
including progress on fundamental rights and the rule of law.
The Government agrees that Turkey is important for the security
and diversity of the EU's energy supply. It supports Turkey and
the EU's objective for Turkey to become a regional energy hub
and an energy transit corridor to the EU. It welcomes the Report's
recommendation of more intensive dialogue between the EU and Turkey
on challenges in Turkey's near neighbourhood."
4.25 Finally, with regard to the Financial Implications,
the Minister says:
"The Reports have no direct financial implications.
EU financial assistance for enlargement is delivered primarily
via the Instrument for Pre-accession Assistance (IPA). The budget
for IPA in the next Multiannual Financial Framework has not yet
been agreed. The Government has been clear in negotiations of
the IPA budget that it must respect the overall MFF ceilings agreed
at February European Council."
Previous Committee Reports
None, but see: (35395)-(35403): Twenty-second Report:
HC 86-xx (2013-14), chapter 11 (6 November 2013) and Thirty-third
Report: HC 86-xxx (2013-14), chapter 18 (29 January 2014).
13 See 36110 - at chapter 8 of this Report. Back
14
See "Europe's ring of fire" in The Economist,
20 September 2014. Back
15
Also see (36371) 13769/14 at chapter 9 of this Report, where we
deal with the Commission's 2013 Annual Report on Financial Assistance
for Enlargment, i.e., the IPA and IPA-II and related financial
instruments. Back
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