The policy

The main objective of the European Neighbourhood Policy (ENP) is the mutual interest of the EU and its neighbours in promoting reform, the rule of law, stable democracies and prosperity – prosperity, security and stability - throughout the neighbourhood of the enlarged European Union. The EU offers its neighbours an intensified political dialogue and deeper economic relationship, based on shared values and common interests in tackling common problems. The ENP is thus a means of working jointly with our neighbours:

To promote prosperity in our neighbourhood by supporting our neighbours’ economic reform processes and offering significant economic integration, and
To advance freedom and democracy in our neighbourhood by deepening political cooperation, on the basis of shared values and common interests
To promote security and stability by working with neighbours to address development, environment, non-proliferation and counter-terrorism issues – in line with the European Security Strategy

What are the new elements and added value of this policy ? Why is there a need for this sort of policy when the EU already has agreements with and policies for these countries ?

The European Neighbourhood Policy represents a new approach in the EU’s relations with its neighbours. While building on the traditional cooperation-based approach, as seen in the Partnership and Cooperation Agreements (with eastern neighbours) and the Association Agreements (with southern neighbours), the ENP

brings added value by bringing together our main policy instruments in a more focused way, in order to enhance our partnership; we go beyond classical foreign policy to support reform and modernisation, based on the projection of our experiences beyond our borders.
covers a wider range of issues, with greater intensity, and throughout all fields of governance, than our existing relationships. In parallel with concrete steps by partner countries towards political and economic reform, the EU offers them a measure of economic integration and closer political cooperation.
will be backed by increased and improved financial and technical assistance, including the use of “twinning” programmes and the possibility of participation in certain Community programmes that promote cultural, educational, environmental, technical and scientific links.
uses proven methodology (that has already helped us to support transition in central and southeastern Europe) and incentives to promote democratic and economic reforms, supporting the countries’ own efforts. By setting clearer and more concrete priorities and objectives in the Action Plans, and carefully monitoring their implementation, the ENP will provide focus and encourage reforms in partner countries.
provides incentives for resolving outstanding issues which have arisen in bilateral relations
offers a greater potential for the development of relations in the future. It is both tailor-made and dynamic - the level of ambition of our relations with these countries will take account of implementation of agreed reforms. Once monitoring shows significant progress and if the partner country is interested, it will be possible to consider deepening relations.

What are the “shared values” on which the ENP is based ?

The ENP is based on the concept of shared values and common interests. The shared values are those which ensure our prosperity, stability and security i.e. democratic reforms (fundamental rights, rule of law), market economy and sustainable development (including reforms in sectors such as trade, competition, energy and transport, environment, people-to-people contacts etc). These reforms will enable us to develop joint responses to the common challenges we face in the twenty-first century e.g. prosperity gaps, migration, crime, environmental issues, public health, extremism and terrorism.

How does the ENP relate to the European Security Strategy ?

The European Neighbourhood Policy is about the mutual interest of the EU and its neighbours in sharing a zone of stability, security and well-being. It is a joint agenda to promote good governance in order to better manage our shared neighbourhood. It is designed on the basis of common values and interests, including the need for a joint response to common challenges e.g. prosperity gaps, migration, crime, environmental issues, public health, extremism and terrorism. In this way, the ENP also contributes to regional and global stability and security.

The Mediterranean and Eastern European countries are very different – how can the same policy adequately address their needs ?

Each country’s situation is different, as are the general situations in our “eastern” and “southern” neighbourhood. Which is precisely why the individual ENP Action Plans are tailored to reflect the EU’s relations with each country, the situation of the country (geographic, political, economic, the state of reforms etc.) as well as the country’s needs and capacities, taking into account the interests of both sides. This differentiation between partner countries is a central element of the ENP. Nevertheless, reform and modernisation in both regions aims at similar goals where Europe has much to offer.

The ENP is a powerful instrument to promote democratic and economic reforms, supporting our partner countries’ own efforts through proven transition methodology. It is a dynamic and tailor-made policy, with the level of ambition for relations with individual countries being based on progress made by those countries in implementing agreed reforms (as spelled out in the ENP Action Plans).

How does the ENP relate to the Euro-Mediterranean Partnership (“Barcelona Process”)?

The European Neighbourhood Policy (ENP) and the Euro-Mediterranean Partnership (the so-called “Barcelona Process”) share the same basis i.e. bilateral Association Agreements with countries in the region. Both policies make use of the institutions established under those Agreements, allowing for a formal dialogue at various levels. With many goals in common, the Euro-Mediterranean Partnership pursues a multilateral track whereas the ENP provides additional focus and impact through a bilateral approach of mutual commitments to implement reforms and modernisation conducive to closer economic integration and political cooperation.

The ENP, through the ENP Action Plans, sets out to create enhanced relationships with our neighbours, based on shared values such as the rule of law, democracy and human rights, which are fully consistent with the EuroMed acquis and also the strategy outlined in the Commission’s 2003 Communication on “reinvigorating EU actions and democratisation with Mediterranean partners”. Working through the structures of the existing Association Agreements, the ENP builds on the potential of the existing relationship and breaks new ground.

The ENP is a differentiated policy, offering our partners bilateral incentives and opportunities, in addition to the multilateral nature of the Euro-Mediterranean Partnership e.g. where that envisages trade integration focusing on tariff issues, the ENP goes beyond to offer economic integration, inclusion in networks etc. The ENP uses new tools and methods e.g. precise reform goals and steps, regulatory harmonisation, the extension of the twinning and TAIEX instruments etc.

It is therefore a valuable complement to the Euro-Mediterranean Partnership as it allows each country to develop closer links with the EU, based on its particular needs and capacities.

How does the ENP relate to the EU’s position on the Middle East Peace Process?

As the ENP brings deeper and more intense bilateral relations with our neighbours, covering all policy areas, it also allows the EU to address certain issues which arise between partner countries. The EU’s interactions with countries in the Middle East, through the ENP, can contribute to creating a more facilitating environment. Through the emphasis which ENP places on bilateral aspects of relations and on differentiation, as well as on sub-regional cooperation, the ENP could facilitate pragmatic advances on the ground, even between countries otherwise divided by conflict.

The EU has strongly supported work towards a solution to the conflict in the Middle East. There are common elements between the ENP Action Plans for Israel and for the Occupied Palestinian Territory, to encourage dialogue and cooperation. In addition, the Action Plans with Israel, Jordan and the Occupied Palestinian Territory include commitments on regional co-operation in various fields, and already this has borne fruit, between Jordan and Israel in the form of a trade agreement to permit jointly produced exports to enter EU markets under tariff free arrangements. The EU also sponsored cooperation on energy and transport by helping set up Joint Offices between Israel and the Occupied Palestinian Territory, and also holding a trilateral EU-Israel-Palestinan Authority group in order to address trade issues.

How will the ENP contribute to regional or sub-regional cooperation ?

The European Neighbourhood Policy (ENP) reinforces existing forms of regional and sub-regional cooperation and provides a framework for their further development. The May 2004 ENP Strategy Paper contains recommendations on the development of regional cooperation and integration, e.g. through crossborder cooperation involving local and regional authorities as well as non-governmental actors, as a means to address certain issues arising at the EU’s external borders.

To the east, greater regional cooperation should bring substantial benefits, including to the Russian Federation. The EU is not seeking to establish new bodies or organisations but rather to support existing entities e.g. the Council of Europe, the Baltic Sea Council, the Central European Initiative, the Black Sea Economic Cooperation, as well as EuroRegions … and to encourage their further development. One of the most pertinent lessons drawn from the existing Northern Dimension policy is the importance of local ownership.

In the south, the ENP encourages countries to reap the full benefits of the Euro-Mediterranean Partnership by promoting infrastructure networks and markets (especially energy) and to develop new forms of cooperation with their neighbours. The ENP builds on the achievements of the EuroMediterranean Partnership, particularly in the area of trade.

How will the ENP contribute to conflict resolution ?

Regrettably, there are a number of unresolved conflicts in or between ENP partners – from Moldova to the Southern Caucasus, the Middle East to the Western Sahara.

The ENP is not, per se, a conflict-prevention policy, although the promotion of prosperity, stability and security which the EU has achieved in Western Europe can be considered to be the ultimate form of conflict prevention. The ENP is, however, a means of addressing these issues indirectly - by tackling underlying issues of governance, lack of economic development, insecurity and stability, in order to help avoid conflicts arising in the first place, to better manage those that do and to contribute to a climate in which they might be resolved.

Given the EU’s own history and development, the ENP attaches importance to people-to-people contacts and socialisation, to confidence-building measures and regional cooperation. By emphasising bilateral relations and differentiation, as well as dialogue and sub-regional cooperation, the ENP can facilitate pragmatic advances on the ground, even between countries otherwise divided by conflict.

Where relevant, the ENP Action Plans take account of special circumstances and include certain actions directed at confidence-building, including post-conflict reconstruction or rehabilitation. More generally, the ENP through its reform agenda serves to support more specific actions carried out in the context of the CFSP.

What are the links between the ENP and the EU’s Special Representatives in these areas ?

The ENP Country Reports and Action Plans are developed by the European Commission, working in close cooperation with the EU’s High Representative for the Common Foreign and Security Policy (Javier Solana) on matters related to political cooperation and the CFSP. Where there are EU Special Representatives , as in the Southern Caucasus or Moldova (Transnistria) or in the Middle East, the Commission also works closely with them on the development, implementation and monitoring of the political aspects of the relevant ENP Action Plans.

The ENP does not offer membership. What incentives does it offer and are the envisaged benefits enough to encourage and sustain political and economic reforms and development in these countries ?

The European Neighbourhood Policy (ENP) is not about membership of the EU. It is a response to long-standing requests from many of these countries for closer relations, founded on partnership and joint ownership. If an accession perspective were to be offered at some point in the future to any of the countries covered by the ENP, this would be a separate process.

What are the incentives on offer ? The ENP offers serious incentives for reforms that will bring benefits in terms of economic and social development, even apart from the benefits of greater trade and other access to the EU. These incentives go further than anything offered to any other group of ‘third countries’. As well as ‘traditional’ trade preferences and financial assistance, ENP offers

new forms of technical assistance ‘borrowed’ from our proven methodology / ‘transition toolkit’,
concrete benefits such as gradual participation in our Agencies and programmes in fields such as education, training and youth, research, environment, culture, audio-visual policy etc.
a new, specific and policy-driven financial instrument – the European Neighbourhood and Partnership Instrument - with increased funding and more efficient and streamlined procedures to better support partner countries’ reform priorities
a new emphasis on improved cross-border cooperation along the EU’s land and maritime borders.
even a long-term goal of a Neighbourhood economic community for partners who are interested and carry out the necessary reforms, with our help.

Strengthened relations with the EU will assist in implementing political, economic and social reform agendas, contributing to sustainable growth and development, anchoring macroeconomic stability, reducing trade barriers, stimulating investment, creating growth and employment.

We believe that these incentives can help to meet the challenges ahead. Not least because ENP was specifically designed to ensure that we could put what we have learnt in Central and Eastern Europe over the last fifteen years to good use in supporting our neighbours, new and old. While we do not have the same end-goal incentive to offer to these countries, we believe that the incentives that are on offer are serious – deeper political cooperation and economic integration. How far each country progresses in these areas will, as ever, depend on their capacity and will to implement the necessary agreed reforms. Some of our partners are already treating the Action Plans as a motor for change. We can help with capacity but cannot substitute for partners’ political will – countries will go as far and as fast as they wish.

Why doesn’t the EU offer a membership perspective to Ukraine and Moldova ?

The EU acknowledges these countries’ European aspirations.

However, ENP is distinct from issue of enlargement. EU must first digest ongoing enlargement and fulfil promises already made, while maintaining integration momentum. It is clearly unrealistic for us to embark on further commitments at this stage – an accession perspective is not for the moment on the agenda for these countries. At the same time, the ENP does not prejudge any future developments, in accordance with the Treaty.

The ENP provides an excellent basis for strengthening our relationship (as demonstrated, for example, by the intensifying relationship with Ukraine) here and now. ENP will bring these countries closer to EU, by encouraging reform and by offering a substantial degree of economic integration as well as deeper political co-operation.

In any case, these countries have, in their different ways, a very long way to go in terms of delivering on political and economic reform, before they could envisage the prospect of membership. Better that our neighbours get on with the very necessary reforms, with our help.

What are the expected economic benefits of the ENP ?

It is still early to try to quantify the benefits (or “the cost of non-ENP”) but, properly implemented, ENP should contribute both directly and indirectly to sustainable growth in partner countries e.g.

The incentives and support for economic and social reforms should lead to a better macro-economic environment and a long-term anchor for stability
The reforms set out in the ENP Action Plans should contribute to poverty reduction and the modernisation of public services
Investment and growth should follow when barriers to trade and investment are reduced in these countries, when there is convergence of economic legislation and the opening of partner economies to each other, as well as the promotion of regional and network integration between them and with the EU
Facilitating structural reforms, policy dialogue, as well as improvements in the regulatory framework and institutional modernisation, should be conducive to growth.

Many of these countries are developing countries - how does the ENP relate to the EU’s development policy ?

The Commission’s Development Policy Statement of July 2005 sets out a clear development agenda, relevant to all developing countries but differentiated in accordance with the different needs and circumstances of different regions. Many of our neighbouring countries are Middle Income Countries, some are post-Soviet industrialised transition countries. The ENP, in line with the Development Policy Statement, pays special attention to reform and governance issues of particular relevance to these countries. For those neighbouring countries which are lower income countries, and where a Poverty Reduction Strategy Programme (PRSP) is in place, this is fully reflected in the respective ENP Action Plan.

Are there links between ENP and WTO accession ?

The EU has a network of bilateral agreements with the countries covered by the ENP – Partnership and Cooperation Agreements (with the neighbours to the East) and Association Agreements (with the neighbours to the South). The EU has ensured that these agreements are fully compatible with WTO rules – indeed, the trade parts of them are based on WTO rules. Since the Association Agreements provide trade preferences to our partner countries, they have therefore been notified and examined, or are in the process of being examined, in the WTO’s Committee on Regional Trade Agreements. All of them have been negotiated so as to fully comply with the specific rules (GATT Art. XXIV) for Regional Trade Agreements.

In the short to medium term, the full(er) implementation of these bilateral Partnership and Cooperation or Association Agreements is a priority under the ENP. The ENP Action Plans with each country highlight the need for progress with WTO accession (where countries are not yet members) and the importance of implementing WTO rules (for those that are already members).

Is there synergy between the ENP and the efforts of other countries or organisations supporting reforms in these countries ?

Yes. As with support for transition and reform processes elsewhere in the world, the EU works closely with other actors supporting reforms in those countries or regions. Depending on the region or country, this means organisations such as the United Nations, the Council of Europe, the Organisation for Security and Cooperation in Europe and other donors such as the United States. Where the countries of the ENP are already members of other organisations (e.g. UN, OSCE, CoE), the ENP Action Plans also make specific reference to the need to implement obligations arising from membership of such organisations.

The Commission already cooperates actively with these bodies through regular exchanges of views and information and coordination, to ensure synergies. The World Bank has specifically recognized the added value of ENP by already aligning Country Strategies with the ENP Action Plans precisely because the countries have greater ownership of these reform priorities.

The ENP is of course also coherent with and supportive of other EU policies such as the EuroMediterranean Partnership, the European Security Strategy, the EU’s Development policy and also policies on migration and sub-Saharan Africa.

How does the EU cooperate with the Council of Europe (CoE) and the Organisation for Security and Cooperation in Europe (OSCE) in promoting democracy and human rights in these countries ?

The parts of the ENP Action Plans dealing with political reform and human rights are based on the principles of international and human rights law to which the EU and partners countries have subscribed under existing universal (core UN conventions) and regional conventions (Council of Europe, OSCE), with specific reference to country’s international obligations in these areas. Both separately and together, the EU, the CoE, the OSCE and our partner countries are all committed to the same goals in these areas.

The EU works closely with the CoE and the OSCE, in ENP partner countries which are also members of these groupings, with a view to complementarity, coherence and coordination, since some of the priority areas on which the countries are working within the ENP are the same as their membership commitments to those organisations. Depending on the issue, the EU draws on the organisation’s country or specialised thematic knowledge (e.g. minority rights, torture) – for instance, in monitoring the implementation of these aspects of the ENP Action Plans and in drawing up its November 2006 progress reports, the European Commission will draw on assessments made by the CoE, the OSCE and other regional and international organisations. Cross-border regional cooperation is a key element of the ENP, in which the Council of Europe’s work on Euro-regions can play an important role.

Geographical Coverage -

To which partners the EU offer is addressed?

The European Neighbourhood Policy covers the EU’s neighbours to the east and along the southern and eastern shores of the Mediterranean i.e. Algeria, Armenia, Azerbaijan, Belarus, Egypt, Georgia, Israel, Jordan, Lebanon, Libya, Moldova, Morocco, the occupied Palestinian territory, Syria, Tunisia and Ukraine.

What about Belarus, Libya and Syria ?

However, the full benefits of the European Neighbourhood Policy cannot currently be extended to Belarus, Libya or Syria. Belarus and the EU will be able to develop contractual relations when Belarus has established a democratic form of government, following free and fair elections. Libya would need to first become part of the Barcelona Process before we can consider having an Association Agreement and eventually an ENP Action Plan. For Syria, the Association Agreement would have to be ratified before an ENP Action Plan could be considered.

Why isn’t Russia included in the ENP?

Although Russia is the EU’s largest neighbour, the relationship with Russia takes the form of a Strategic Partnership, rather than through the ENP – an indication of the differentiation which we apply to our relations with our neighbours, promoting our mutual goals in ways which are specific to each country. The EU recognises that Russia is a “strategic partner” and bases the relationship on the concept of four common spaces, on which roadmaps were agreed in May 2005, and is consistent with the ENP.

With the end of the TACIS programme, the Strategic Partnership with Russia will also be funded from the ENP funding instrument, the European Neighbourhood and Partnership Instrument pdf - 113 KB [113 KB] , for instance for cross-border cooperation and for the implementation of the priorities identified in the roadmaps.

Why isn’t Turkey included ?

The ENP is addressed to countries which do not, or do not presently, have an accession perspective. Turkey was recognised as a candidate country, at the Helsinki European Council in December 1999 and is therefore not covered by the European Neighbourhood Policy. The European Union’s approach towards candidate and potential candidate countries is defined in its Accession and its Stabilisation and Association processes.

Why isn’t Moldova included in the policy for the Balkan countries ?

The Stabilisation and Association policy (SAP) applies to the countries of the Western Balkans (Albania, Bosnia and Herzegovina, Croatia, the former Yugoslav Republic of Macedonia, Montenegro, Serbia including Kosovo) which have a recognised accession perspective. EU policies towards candidate and potential candidate countries serve a different purpose, to prepare for accession. As a neighbouring country without such an accession perspective at present, Moldova is covered by the European Neighbourhood Policy.

What about Iran and Iraq ?

As and when Turkey might become a Member State of the EU, Iran and Iraq would then share a land border with the European Union. For the moment, however, the coverage of the ENP includes those countries that share common borders with the EU and present candidate countries, or are members of the EuroMediterranean Partnership (but not members of other processes such as enlargement or Cotonou). With regard to the regions adjacent to Turkey, however, the ENP only includes the countries of the Southern Caucasus which share a European vocation, seek to base their reforms on the European model, share a regional identity and, in the case of Georgia, a maritime border with Bulgaria and Romania.

The ENP Action Plans and their implementation -

What progress has been made, so far, in implementing the ENP ?

Since the European Neighbourhood Policy was proposed, good progress has been made on developing and implementing the core instruments of the ENP – the presentation of 12 Country Reports, the adoption of 12 ENP Action Plans, implementation and monitoring through relevant subcommittees, adoption of a new instrument to better provide assistance to these countries in support of the objectives agreed in the Action Plans.

In December 2006, April 2008 and April 2009, the Commission presented reports on the progress made in implementing the ENP – an overall assessment, country reports reports for countries having agreed bilateral ENP Action Plans and sectoral progress reports. In addition, information on support for ENP partnerscan be found in the fact-sheets published elsewhere on this site.

Which countries already have ENP Action Plans ? What about the others ?

ENP partner countries	Entry into force of contractual relations with EC	ENP Country Report	ENP Action Plan	Adoption by EU	JOINT adoption WITH partner country
Algeria	AA - September 2005	--	--	--	--
Armenia	PCA – 1999	March 2005	Agreed autumn 2006	13.11.2006	14.11.2006
Azerbaijan	PCA – 1999	March 2005	Agreed autumn 2006	13.11.2006	14.11.2006
Belarus	--	--	--	--	--
Egypt	AA – June 2004	March 2005	Agreed Spring 2007	05.03.2007	06.03.2007
Georgia	PCA – 1999	March 2005	Agreed autumn 2006	13.11.2006	14.11.2006
Israel	AA - June 2000	May 2004	Agreed end 2004	21.02.2005	11.04.2005
Jordan	AA - May 2002	May 2004	Agreed end 2004	21.02.2005	02.06.2005
Lebanon	AA - April 2006	March 2005	Agreed autumn 2006	17.10.2006	19.01.2007
Libya	--	--	--	--	--
Moldova	PCA - July 1998	May 2004	Agreed end 2004	21.02.2005	22.02.2005
Morocco	AA - Mar 2000	May 2004	Agreed end 2004	21.02.2005	27.07.2005
Occupied Palestinian Territory	Interim AA - July 1997	May 2004	Agreed end 2004	21.02.2005	04.05.2005
Syria	--	--	--	--	--
Tunisia	AA – March 1998	May 2004	Agreed end 2004	21.02.2005	04.07.2005
Ukraine	PCA – March 1998	May 2004	Agreed end 2004	21.02.2005	21.02.2005

What is the purpose of the ENP Action Plans ?

The Action Plans are one of the key instruments for the implementation of the ENP. They are country-specific, tailor-made political documents which jointly define an agenda of political and economic and sectoral reforms. They set out short and medium-term priorities. Since these are agreed with the partner countries, they also provide useful guidance for EU and other donors and actors seeking to support, financially or otherwise, the countries’ reform agendas.

What is the scope of the Action Plans ? Are they identical for each country ?

Although the content of each individual Action Plan is tailor-made for the partner country, the structure of each ENP Action Plan is similar. Each contains chapters on:

Political dialogue and reform
Economic and social cooperation and development
Trade-related issues, market and regulatory reform
Cooperation in Justice, Freedom and Security issues (formerly Justice and Home Affairs)
Sectoral issues e.g. transport, energy, information society, environment, research and development etc
Human Dimension: people-to-people contacts, civil society, education, public health

However, as a result of the negotiation process with each country, the content of each of these headings of the ENP Action Plan is tailor-made (differentiated) for that country, to take account of its situation, interests, needs and capacity.

What is the legal status of the Action Plans ?

The ENP Action Plans are political documents, reflecting political agreement between the EU and the partner country on the agenda, objectives and priorities for future relations. These relations are based on, and require, a pre-existing contractual relationship with the EU, whether a Partnership and Cooperation Agreement (in the case of neighbours to the east) or an Association Agreement (in the case of neighbours to the south). The ENP Action Plans are adopted through the Association or Cooperation Council between the EU and the partner – whether at a meeting (as in the case of Ukraine on 21 February 2005 and Moldova 22 February 2005 ) or through a written procedure of the Association/Cooperation Councils.

There are no legal sanctions for failure to implement commitments contained in the ENP Action Plans. In such a situation, the consequences would, rather, be political (in terms of the overall relationship) and/or financial (in terms of assistance provided in support of that policy area).

What is the added value of the ENP Action Plans e.g. compared to existing Association or Cooperation Agreements with the EU ?

The ENP Action Plans build on the partner’s existing contractual and institutional relationship with the EU, whether an Association or a Partnership and Cooperation Agreement. The ENP Action Plans focus on full implementation of these existing Agreements, and define much clearer reform priorities for each country than in the past. In parallel with implementation of the ENP Action Plan, the EU offers a broader range of incentives than previously. The ENP Action Plans are also useful as guidance for assistance programming, whether for EC funds or EU Member States’ bilateral funding programmes. Since they reflect the government’s own priorities, and indicate the sequencing of most reforms, they can also be used as guidance by other donors and international financial institutions.

Are there deadlines in the Action Plans and how is implementation monitored ?

The ENP Action Plans have an overall lifespan of between 3 and 5 years, depending what was agreed with each individual partner country. Within the Action Plan, or in the accompanying roadmaps which were prepared for certain countries, the reforms are prioritised as immediate or medium-term priorities. In some cases, more precise deadlines are also indicated.

Implementation is promoted and monitored by various means, including the relevant sub-Committees of the existing Agreements – joint bodies between the EU and the partner country, ensuring joint ownership of the process – which follow the implementation of agreed reforms sector by sector. The meetings of these sub-Committees also serve to agree on the sequence of implementation steps to be taken in any given year. On average, eight or nine sectoral sub-Committee meetings per year are held with each ENP partner.

How do the Action Plans promote political reforms and human rights in ENP countries ?

Each Action Plan therefore contains specific agreed commitments on political reforms and human rights, commitments which will be monitored through the relevant sub-Committee. In the case of certain partner countries, this has required the establishment of such a subcommittee, the first such forum for bilateral discussion of such issues.

How do the Action Plans strengthen political dialogue with ENP countries ?

Through the ENP, the parties should strengthen their existing political dialogue and make it more effective. This dialogue should cover foreign and security policy issues - including regional and international issues, conflict prevention and crisis management and common security threats (e.g. terrorism and its root causes, proliferation of weapons of mass destruction and illegal arms exports) – as well as other areas identified in that country’s ENP Action Plan. It should also promote effective multilateralism. It might also lead to the eventual involvement of partner countries in aspects of the EU’s CFSP or ESDP, such as possible participation in EU-led crisis management operations.

Do countries have to accept the acquis communautaire ?

There is no general obligation to accept the acquis communautaire (the corpus of Community laws and policies already in place.) However, in order to participate in Community programmes, harmonisation with the relevant acquis may be required in order to be capable of participation and to fully reap the benefits of such participation. Similarly, in order to gain a “stake in the internal market”, it will be necessary for partner countries to implement – with our help - the necessary EU-compatible reforms in the particular sector in which they wish to integrate more deeply with the internal market. For instance, for more efficient trade, it is necessary to harmonise with parts of EU labelling rules and with food safety (veterinary and phytosanitary) standards and to use EC customs procedures; to participate in exchange programmes in the field of education, it is necessary to align with the Bologna Process; to participate in programmes in the field of the information society, or energy or transport networks, relevant norms must be respected etc. Those countries that decide to take more of the acquis than strictly required – for instance to enhance their own consumer protection standards – may also receive relevant support.

Is there a role for civil society (NGOs, NGDOs etc) ?

Yes. Civil society and non-governmental organisations play an important role, within their societies, in holding governments accountable. This will also be the case with the reform objectives set out in the ENP Action Plans, objectives which have been agreed with the governments of each partner country. In many cases, there should be complementarity between the reforms which the EU is seeking, from outside, and those which civil society and non-governmental organisations are promoting inside their countries. Reporting and monitoring by civil society and non-governmental organisations, whether national or international, will be one of the sources on which the EU will draw in assessing the progress being made in implementing these reform commitments. The continuous development of the ENP will depend also on feedback from civil society which is best placed to judge the effects of reform in partner countries.

Do the ENP Action Plans cover issues such as women’s rights ?

Yes. Respect for human and fundamental rights is one of the shared values on which the ENP is based and this features prominently in each of the ENP Action Plans negotiated with partners. In addition, women’s rights feature either as a specific heading or under human rights headings, covering issues such as promoting women’s rights and ensuring equal treatment and opportunities, strengthening the role of women in economic and social progress, plans to increase participation in political and economic life etc, as well as measures on tackling trafficking.

Is there a role for business in the ENP ?

Yes. The reform objectives which are agreed with partner country governments, in the ENP Action Plans, will have an important impact on businesses in these countries - and business should also play a role in pushing for implementation of these necessary reforms. This is in the interest of business both in those countries and in the EU. There is also a role for European businesses in helping to share EU standards and values in these areas, as well as the experience which has been gained through recent transition processes in many of our new Member States. The continuous development of the ENP will depend also on feedback from business which is best placed to judge the effects of reform in partner countries.

What will economic and trade integration mean?

Deeper economic integration with ENP partners is a key objective. This should go beyond free trade in goods and services to also include “behind the border” issues: addressing non-tariff barriers and progressively achieving comprehensive convergence in trade and regulatory areas. Over time, the implementation of the ENP Action Plans will prepare the ground for the conclusion of a new generation of “deep and comprehensive free trade agreements” with all ENP partners, like the one which the EU intends to negotiate with Ukraine.

The process will be gradual, taking into account the capacity and interests of both sides. It will allow the most advanced countries to move faster without being held back by others. This would be part of a longer-term vision of a Neighbourhood economic community emerging between the EU and its ENP partners.

What happens after the Action Plans have been implemented ?

In the 2004 ENP Strategy Paper, the Commission proposed that the “next step in contractual links with each partner country… could take the form of European Neighbourhood Agreements whose scope will be defined in the light of progress in meeting the priorities set out in the Action Plans.”

It is, however, premature to discuss these possibilities at present when implementation of the first ENP Action Plans is only half-way through. Much will depend on the progress which the partners make in implementing the agreed priorities contained in these Action Plans - which, in turn, depends on their capacity (with which the EU can help) and their political will.

Funding -

What is the European Neighbourhood and Partnership Instrument (ENPI) ?

From the beginning of the next budget cycle (Financial Perspective) in 2007, financial support for the European Neighbourhood Policy and ENP countries will be provided through a dedicated European Neighbourhood and Partnership Instrument (ENPI). The ENPI will target sustainable development and approximation to EU policies and legislation, and bring a radical improvement in our capacity to support cross-border cooperation along the EU’s external borders – thus giving substance to our aim of avoiding new dividing lines. The ENPI will replace MEDA and TACIS and other existing instruments.

The ENPI is a “policy driven” instrument that will operate in the framework of the existing bilateral agreements between the Community and the neighbouring countries. It will focus in particular on supporting the implementation of the ENP Action Plans. In that context it will go further than promoting sustainable development and fighting poverty to encompass for example considerable support for measures leading to progressive participation in the EU’s internal market. Legislative approximation, regulatory convergence and institution building will be supported through mechanisms such as the exchange of experience, long term twinning arrangements with Member States or participation in Community programmes and agencies.

A specific and innovative feature of the instrument is its cross border co-operation component. Under this component, the ENPI will finance ”joint programmes” bringing together regions of Member States and partner countries sharing a common border. The instrument will bring a radical simplification in procedures and substantial gains in efficiency. It will use a “Structural Funds” approach, based on multi-annual programming, partnership and co-financing. The cross border co-operation component of the ENPI will be co-financed by the European Regional Development Fund (ERDF).

The words “and Partnership” in the title of the instrument reflects that this will also fund the implementation of the Strategic Partnership with Russia (previously funded through the TACIS programme).

Why was a new funding instrument necessary for this policy area ?

It has proved difficult to support cross-border cooperation along the EU’s external borders due to the need to combine internal funding instruments (Regional/Structural Funds) with external funding instruments (e.g. TACIS, MEDA), operating with different rules and procedures. In its 2003 Communication on “Wider Europe”, the Commission recognised the importance of encouraging cross border co-operation at the EU’s external borders, with the overall aim of preventing the creation of new dividing lines in Europe. In order to overcome the difficulties which arose from the combination of the different rules and procedures, the Commission proposed a single set of rules to cover cooperation at all of the EU’s external borders. This was spelled out in more detail in the Commission’s 2004 ENP Strategy Paper. Both documents were based on the idea of ENPI complementing rather than replacing the existing instruments (e.g. MEDA, TACIS).

However, as a result of parallel work on reforming the overall way in which EU external policies are funded, the Commission then proposed that the plethora of existing instruments funding external relations should be completely replaced, from the next budget cycle (2007-2013), by a much simpler system. This would mean three emergency instruments (humanitarian, macro-financial and a new Stability Instrument) and three policy-driven instruments (one for pre-accession, one for ENP and one for development and economic cooperation, as well as one on human rights, one on nuclear safety and one for cooperation with industrialised countries). These would replace all existing external relations funding programmes for the areas that they cover.

As regards cross-border cooperation, a key objective of the ENP, the new ENPI instrument will therefore provide a radical improvement over the current situation.

What will become of MEDA and TACIS or EIDHR ?

MEDA and Tacis will, like other programmes from which these countries currently benefit, all be replaced by a single instrument – the European Neighbourhood and Partnership Instrument.

Although it was originally proposed that the European Initiative for Democracy and Human Rights (EIDHR) should become part of the policy instrument for each area i.e. to mainstream human rights as a thematic programme, it was ultimately decided that this should remain a separate instrument.

Will this involve additional funding for these countries ?

In keeping with the fact that the European Neighbourhood Policy is the EU’s external relations priority, the amount of EC funding for these countries for the budget cycle 2007-2013 – nearly €12 billion - will be 32% greater, in real terms, than the amount available 2000-2006. The priority now is to make sure that this is used as effectively as possible, strengthening the links between co-operation and the policy agenda.

In addition, the Commission is proposing new, increased, EIB mandates making available additional lending resources for this region. EU Member States also provide additional bilateral assistance to these countries.

What is the Governance Facility ?

The Governance Facility will provide additional EC support, on top of the EC funding amounts already allocated for those countries. This support will acknowledge and support the work of those partners who have made most progress in implementing the agreed reform agenda set out in their Action Plan. The assessment included in the Annual ENP Country Progress Report will provide the basis for the annual allocation decisions pdf - 101 KB [101 KB] . It will support key elements of the reform agenda, helping reformist governments to strengthen their domestic constituencies for reform.

The Commission intends to devote an amount of €300 million over the period 2007-2013.

What is the Neighbourhood Investment Facility?

The Commission intends to put €700 million (over the period 2007-2013) into a fund which would be used to support IFI lending in ENP partner countries. EU Member States would be invited to match this amount, so the fund could then leverage as much as four to five times this amount of grant funding, in concessional lending for investment products in ENP partner countries, in priority sectors as identified in their ENP Action Plans.

How will the ENP improve support for cross-border cooperation ?

The European Neighbourhood Policy attaches great importance to cross-border cooperation, in order to not create new dividing lines between the EU and its neighbours. It will improve support for cross-border cooperation in several ways. Not only by obtaining more funding for this priority policy area but also by a radical improvement in the funding and implementation mechanisms. Unfortunately, the current situation is that the differences between the rules applying to funding programmes inside and outside the EU makes it difficult to support cross-border cooperation along the EU’s external border. This was one of the reasons behind the Commission’s proposal to replace all existing funding instruments for these countries with a single instrument – the European Neighbourhood and Partnership Instrument (ENPI) which, by using the same rules and procedures as the EU’s Structural Funds, would make it easier to implement projects which straddle the EU’s external borders (land or maritime).

What are TAIEX and “twinning” and when will they become available to these countries ?

TAIEX and twinning instruments are two instruments that have proven their success in the recent EU enlargement process and are also being used in the Western Balkans. TAIEX is an instrument to provide targeted policy and legal advice in the context of legislative approximation with the acquis communataire, usually by sending an expert from an EU Member State to help a Ministry or local government in a partner country with a specific reform task. The legal and practical obstacles have been resolved so TAIEX is now available in particular to the countries already implementing ENP Action Plans. The necessary structures, in both the partner countries and the Commission, have been established and a number of projects are under development.

Twinning is another very valuable tool from the “enlargement toolbox”, enabling us to send out officials from EU Member State administrations (central or regional) to work together with their counterparts in the administration of a partner country, so as to prepare together for the implementation of the acquis communautaire in a particular sector. It is, however, more complicated than TAIEX, demanding thorough preparation and long-term commitment, as well as a dedicated support structure, from the partner. It has now begun, after several years of preparation, in some Mediterranean countries and in Ukraine. There were legal obstacles to be overcome on the side of some of the countries, i.e. national legislation which forbids officials to work together with officials from a foreign state.

What Community programmes and agencies will be open to partners ?

The European Neighbourhood Policy offers partners the possibility to participate progressively in key aspects of EU policies and programmes. The main Community programmes which are on offer are in the fields of education, training and youth, research, environment, culture and audio-visual. A separate more technical proposal was also issued on this subject on 4 December 2006.