Rådets rapport vedr. Den Nordlige Dimension (til DER i Bruxelles d. 16.-17. oktober 2004)

Sustainable and sustained economic growth in the Northern Dimension region is the key priority for the 2004-2006 period. The economic opportunities presented by the enlargement of the Union must be fully exploited. A favourable business climate must be developed on both sides of the future EEA/EU border through, inter alia, the implementation of economic reforms in new EU Member States and in the Russian Federation, and Russian efforts to integrate with the international economy (through WTO accession), and with the EU economy (through the Common European Economic Space initiative).

Further efforts will be made to remove technical and other barriers to trade and investment, to promote equal competition among economic actors, and to help develop a transparent financial sector. Special consideration must be given to SMEs, particularly in new EU Member States and in Russia, to help them take full advantage of EU market opportunities. Ongoing efforts to speed up border crossings and to fight corruption will be continued.

Measures must be taken to stimulate investments, taking account of the role which foreign investment can play and of the need to attract the kind of investment which can best promote development and innovation. The vision of the Baltic Sea region as a "Joint Investment Area" should be supported.

Business co-operation, trade and the economy must develop in the full respect of internationally recognised principles of sustainable development, in their environmental, social and economic dimensions, as well as gender issues and the protection of human rights.

Continued effective implementation of related support measures, notably through EU programmes such as Tacis and INTERREG, as well as through bilateral and regional co-operation programmes will have an important part to play here.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To improve the business climate, removing technical and other barriers to trade and investment and promoting co-operation among the business community across the region.

The Northern Dimension area is rich in natural resources and offers significant potential for the production and supply of energy, while at the same time possessing a unique environment that is particularly vulnerable to pollution or other side-effects of unsustainable development.

Infrastructure must be developed in order to provide better security of energy supply to the European continent and safe, effective and environmentally sound energy supply for the population and industry to the partner countries in the region. The work on energy issues must encompass the further development and integration of energy markets, the strengthening of EU – Russia and Norway-Russia dialogue on energy and its co-operation with the Baltic Sea regional energy co-operation BASREC, the development of energy resources in an environmentally friendly way and the promotion of energy efficiency and saving. This energy partnership is principally aimed at enhancing the security of energy supplies to the EU and at improving investment conditions in Russia’s energy sector in order to upgrade the infrastructure, promote energy efficient and environmentally friendly technologies, and enhance energy conservation within Russia.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To develop the electricity and natural gas transportation networks in the Northern Dimension region, thus contributing to the competitive operation of the EU internal energy market and to the security of energy supplies across Europe. Northern Dimension partners will work to improve the co-ordination of energy production and supply, and to achieve full integration of the acceding countries in the EU priority axes for energy transportation and in a Common European Energy Market.

The improvement of the transport infrastructure in the Northern Dimension area is vital for the economic development of the region, with the key priorities being the development of a multi-modal transport system improving the connections within the region and with the neighbouring countries, the creation of an environmentally friendly integrated transport and communications market, the promotion of an efficient use of existing infrastructure, and the further realisation of the Pan-European transport network in partner countries. Safety levels within all modes of transport must be enhanced, in particular for maritime safety with regard to the use of double-hull tankers and sufficient safety classification in harsh ice conditions, including scientific research support.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To address bottlenecks and choke points in the Northern Dimension region, creating at the same time an environmentally friendly transport network integrating accession countries. The basis for such a work will be provided by the Commission revision of the Guidelines for the Trans-European Transport Network (TEN-T) and the Commission White Paper "European Transport Policy for 2010".

Information and communication technology (ICT) will play a crucial role in the development of a prosperous and sustainable Northern Dimension region in the coming years. The private sector should take an active role in this, and the public-private financing of NeDAP projects should be encouraged. The Northern Dimension region can develop a leading knowledge-based economy, in particular through follow-up of the Northern eDimension Action Plan, launched in 2001.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To promote the co-ordinated development of telecommunications, information society networks and services in the Northern Dimension region, including the regulatory and administrative framework. A co-ordinated effort should be made to support ICT development in Northwest Russia, to help avoid the development of a technology and infrastructure gap.

The Northern Dimension region has a rich supply of human resources and a high scientific potential. The future of the whole area, including the Arctic, and the social well-being and economic growth of the region will depend to a large extent on the development of this potential.

To assist in unlocking the rich supply of human resources and high scientific potential of the region, the key objective is to give priority attention to capacity building, education and training/retraining, scientific research and health with the objective to create a sustainable region. Outdated qualifications and skills should be brought to meet demands with regard to sustainable development as well as modern technological demands. Students, teachers and researchers must be able to maximise the opportunities available to them notably through the promotion of university exchanges and the use of virtual learning facilities in the promotion of culture, democracy and sustainable economic growth. The principles of life-long learning must be implemented in the countries of the region, in order to improve the overall level of education in the area.

Cultural development, (including cultural tourism) should be strengthened, by mobilising and co-ordinating national, regional and local authorities, NGOs, private enterprise and civil society in the preservation of cultural heritage and the promotion of cultural diversity and dialogue.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To promote the creation of a "knowledge-based sustainable region" through joint projects, networking and mobility in the fields of education and training, research, culture and youth, and by bringing information and learning opportunities to remote areas through Internet-based and other tools.

Scientific research is vital to the development of the region, with the key objective being to ensure that research activity is effectively co-ordinated and recognises the impact of ongoing economic, environmental, political and social change in the region. Co-operation among enterprises, universities and the scientific community should be enhanced with a view to fostering employment creation.

The present Action Plan therefore supports the goal of promoting scientific research in the Northern Dimension area, with a focus on climate change and the economic, social and environmental impacts caused by climate variability and change.

Specific attention must be given to research relating to the development of infrastructure and materials suitable for harsh climatic conditions, the improvement of environmentally sound exploration, extraction and transport technologies for fossil energy and minerals, the development of appropriate transport policies and technologies, and the analysis of socio-economic and environmental changes across the region. In the formulation of research policies and projects, it will be important to seek consultations not only with the various scientific research institutions but also with bodies such as the Arctic Council and the Barents Euro-Arctic Council.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To improve communication and information exchange among all sectors of the scientific community in Russia and in the enlarged EU, encouraging at the same time the involvement of young researchers. This will improve the dissemination of information to the scientific community at large in the region and create a mechanism for stimulating co-operation between the many scientific institutes and universities in the North.

High priority must be attached to the fight against communicable diseases (especially tuberculosis and HIV/AIDS) in Northwest Russia and the accession countries, as well as to the goal of addressing problems related to general health and social wellbeing, such as the use of illicit drugs, alcoholism and other life-style related conditions. Society as a whole must be active in health promotion and in the enhancement of healthy lifestyles. Strengthening international co-operation at all levels is key for the achievement of such objectives, inter alia through the establishment of the Northern Dimension Partnership in Public Health and Social Wellbeing .

In addressing these issues, activities will be developed in accordance with the EU strategy on public health (the EU Public Health Programme 2003-2008 ), with the recommendations adopted by the Fourth Baltic Sea States Summit in St Petersburg on 10 June 2002 on the threat of communicable diseases  and with those contained in the Prime Ministers’ Declaration at the Barents Euro-Arctic Council 10^th Anniversary Summit in Kirkenes on 11 January 2003 .

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To address the challenges posed by major communicable diseases, and particularly tuberculosis and HIV/AIDS. A special attention will be paid to health problems in children and young people, addressing also the social and economic roots of such diseases.

The vast environmental problems in the region are well known, including also such specific factors as the particularly severe impact of climate change in the high north, and the negative consequences of pollution on the fragile marine ecosystem and the Arctic.

It is beyond the capacity of any country or organisation to tackle these trans-boundary problems single-handed. Concerted and co-ordinated action is essential, both on the convergence of environmental standards and policies, and on funding joint cooperation activities. The Northern Dimension Environmental Partnership provides a useful example of how a concerted approach can effectively address urgent problems. The Strategic Partnership on Water for Sustainable Development", established between the EU and the States of Eastern Europe, Caucasus and Central Asia in the framework of the global Water Initiative launched by the EU at the 2002 Summit on Sustainable Development in Johannesburg, is another example of such a multilateral concerted approach.

In this work, Northern Dimension partners must take full account of monitoring reports provided by the European Union, HELCOM, Baltic 21 and the Arctic Council.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To strengthen the EU-Russia dialogue on environmental issues in the framework of the Partnership and Co-operation Agreement, and work for the full respect of international conventions on environment.

The immense problems of nuclear waste storage and disposal in the Northern Dimension region, particularly in Northwest Russia are of great concern (including spent nuclear fuel from decommissioned submarines and icebreakers, inadequate or absent storage facilities, and other wastes such as mixed wastes and liquid wastes).

Ensuring nuclear safety and the safe management of spent nuclear fuels and radioactive waste is a priority in the Northern Dimension area. The main problems are the need to provide safe storage facilities for the spent nuclear fuel removed from icebreakers and nuclear powered submarines, the management of a wide variety of radioactive wastes, including mixed and liquid wastes, and the management of submarines that have been taken out of service. Another urgent priority in the region is the early closure and decommissioning of nuclear reactors "at risk". The key objective is to achieve an adequate level of safety across the region.

The present Action Plan thus supports close multilateral co-operation between national authorities, including on legal initiatives such as the agreement on the Multilateral Nuclear Environmental Programme in the Russian Federation . This will include the effective and timely implementation of projects through the Nuclear Window of the Northern Dimension Environmental Partnership Support Fund, as well as upgraded monitoring procedures and an effective exchange of information and expertise on the management of nuclear material.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To implement projects through the Nuclear Window of the Northern Dimension Environmental Partnership Support Fund without delay, following the signature of the agreement establishing a Multilateral Nuclear Environmental Programme in the Russian Federation (MNEPR). Priority will be given to the management of spent nuclear fuel and nuclear waste, and the decommissioning of nuclear facilities and submarines.

The region is rich in natural resources, particularly oil and gas, minerals, fish and timber. These resources are of crucial importance for the economic development of the local communities, although they are under significant pressure. Sustainable use of natural resources is vital if the long-term economic potential of the region is to be realised without negatively affecting the sensitive ecological balance of the area or the indigenous communities that depend on these resources.

The World Summit on Sustainable Development (WSSD) in Johannesburg, 2002, adopted the United Nations Forum on Forests (UNFF) work programme, and the Convention on Biological Diversity (CBD) programme on forests as means to promote sustainable development. Forests of the Northern Dimension have vast global importance because of their broad expanse, their biodiversity, their role in the global carbon cycle, and their actual potential influence on international trade in forest products.

Forests as renewable natural resource are major source of income in rural areas in northern parts of Scandinavia, parts of the accession countries and especially in Northwest Russia. Recognising the importance of forests and of forest sector-based production, the Northern Dimension Forest Sector Programme, prepared by the Barents Euro-Arctic Council Forest Sector Task Force, was referred to in the ND Ministerial Conference of April 2001 in Luxembourg. The priority actions in the programme include the establishment of model forest areas, human resources development and institution building related to the strengthening of forest management, in order to promote sustainable utilisation of forest resources through partnership of all relevant stakeholders. Recognising the importance of social sustainability of forestry, emphasis will be put on small and medium-scale enterprises development.

To help address these priorities, Northern Dimension partners will therefore work to achieve the following key objective (with specific activities as set out in annex):

• To help ensure that Northern and Arctic eco-systems and their bio-diversity shall remain viable, vigorous and able to sustain human socio-economic needs, and to encourage the responsible and sustainable utilisation of forests and fish stocks, with the active participation of local actors, communities, SMEs and indigenous peoples in the decision-making process.

Cross-border co-operation must contribute to promoting regional economic development and integration of the whole Northern Dimension area. The responsibility to initiate cooperation among bordering regions based on a genuine partnership lies mainly with the regions themselves. The relevant EU financial instruments must support this co-operation as efficiently as possible. There is also a need to co-ordinate EU and bilateral funds to facilitate co-operation across the border with Russia within the Northern Dimension area.

The various cross-border co-operation arrangements in the area, including Euro-regions and the co-operation between Russia and Lithuania based on the Nida-initiative, can form a basis for intensified work focused on the borders with Russia in the Northern Dimension region. To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To implement cross-border co-operation initiatives on priority themes such as economic and social development, environmental protection, transport and telecommunication, border crossings and border management, public health, and cultural exchanges.

Organised crime remains a considerable problem in the region, demanding a concerted effort from all partner countries. A co-ordinated and effective response must be made to problems such as economic crime, corruption, money laundering, illegal immigration and trafficking in human beings.

To help address the above priorities, Northern Dimension partners will therefore work to achieve the following key objectives (with specific activities as set out in annex):

• To improve the co-ordination among national administrations and police forces in order to optimise the use of resources, develop concrete operational measures between the EU and Russia, and increase the effectiveness of law enforcement cooperation.

The development of effective border management is crucial to efforts to avoid the emergence of new dividing lines in Europe, while helping to ensure mutual security, the respect of law and cross-border contacts. The present Action Plan supports the goals of fostering secure and efficient management of the EU-Russia border, to prevent illegal movements but allow easy passage for legitimate trade and travel, reducing waiting times, improving infrastructure, increased co-operation between relevant border authorities, and the harmonisation of legislation, standards and procedures.

The economic aspects of improved border management are addressed under section 3.1 above. In addition, Northern Dimension partners will work to achieve the following key objective (with specific activities as set out in annex):

• To combat illegal immigration and other cross-border crime, and facilitate legitimate trade and travel, through improved and integrated border management.

Ensuring effective standards and procedures for public safety and participation in the governmental processes is of particular relevance to the Northern Dimension area; a key priority will be the development of a common space in which people feel secure.

The new Action Plan therefore supports the goal of improving civil protection, with a particular focus on the Baltic and Barents regions, and to further developing the Euro-Baltic programme.

It will be important to develop the link between civil society and government or business decision-making, to harmonise legislation, and exchange experience and expertise in the fields of safety practices and rescue management.

To help address these priorities, Northern Dimension partners will therefore work to achieve the following key objective (with specific activities as set out in annex):

As noted above, Kaliningrad and the Arctic region represent two prominent, although not exhaustive, examples of specific regions with specific needs. To ensure a comprehensive attention to these needs, they have been treated here as cross-cutting issues, main-streamed within each key priority of the Action Plan.

The responsibility for the development of the Kaliningrad Oblast of Russia lies of course with the Russian Federation. Given its particular geographic situation as a Russian exclave surrounded by the European Union it is however particularly important to enhance dialogue and cooperation between Kaliningrad and neighbouring Northern Dimension partners and future EU Member States.

All five priority sectors covered in the present Action Plan have particular relevance for Kaliningrad. Whether in the economic, human resource, environment, cross-border or JHA fields, Northern Dimension activities will be important in allowing Kaliningrad to take full advantage of the opportunities created by EU enlargement.

In the economic field, particular attention will be given to building an enhanced framework for trade and investment, supporting administrative reform, promoting business-to-business links and SMEs development, and ensuring smooth border management; the security of energy supply and the further development of regional transport networks (including shipping lines), with adequate connections to the Trans-European Transport Network will likewise be emphasised.

Attention will also be given to support for human resource development, including vocational and business education, educational exchanges and other joint projects in the field of education, research, culture and youth, as well as joint work to combat threats to public health.

Environmental concerns will be addressed, with a view to resolving existing problems (especially water and soil pollution, urban wastes and chemicals), as well as helping ensure the sustainable development of the region in future. The NDEP Support Fund, as well as financial support provided by international financial institutions and other Northern Dimension partners on a bilateral basis, can help address such challenges.

Cross-border cooperation, focusing on Kaliningrad and the neighbouring regions of the EU, will have a particular importance in the economic, social and environmental fields, as well as in promoting people-to-people contacts at the local level.

Joint efforts to combat organised crime, smuggling, illegal migration and trafficking in human beings will help ensure mutual security and the respect of law for the benefit of all.

The European Commission has already made a special effort in many of these areas, and will continue and strengthen these efforts during the life of the new Action Plan. As an example, the Tacis Indicative Programme for Russia for the period 2004-06 includes a special package for Kaliningrad, costed at some €25m over these three years and focusing in particular on sectors such as administrative reform and business development, public health, education, and cross-border co-operation . This is in addition to broader efforts being carried out through the Tacis Russian national programme, and through the NDEP, which are also of benefit to Kaliningrad.

The northernmost areas of the region require a special attention, bearing in mind the harsh climatic conditions, the fragile environment increasingly threatened by pollution of various kinds, high infrastructure costs in linking scarcely populated areas across long distances, and health problems affecting the indigenous peoples living in the high north.

All five priority sectors covered in the present Action Plan are also relevant for the Arctic, even if the economic, human resources and environment sectors are likely to have a primary importance. It will however be particularly important to enhance broader international co-operation on such themes, involving also partners such as the US and Canada which face similar concerns for their Arctic and Sub-Arctic areas.

Encouraging the economic development of the Arctic region is of crucial importance; such development, however, must take place in full respect of the fragile environmental situation of the region, and must involve local populations and indigenous people in the decision-making process at all levels. Infrastructure issues will have a particular importance, notably with respect to the role which improved ICT networks can play in helping to overcome the constraints of distance and climate.

ICT also has a crucial role to play in fostering human development through distance learning, and in encouraging and preserving local cultures, indigenous languages and cultural heritage.

The University of the Arctic provides a good example of such initiatives. Special attention should be paid to the improvement of living conditions of Northerners engaged in traditional livelihoods such as reindeer husbandry, fishing, hunting and craft making.

Enhanced environmental monitoring in the Arctic, and joint efforts to protect the Arctic environment from chemical, POP and nuclear pollution will be strengthened by building on the research work carried out by the Arctic Council and the Barents Euro-Arctic Council. The Arctic is also an important global laboratory, and Northern Dimension partners will promote further work in this field through, inter alia, RTD programmes of the EU and the Nordic Council of Ministers.

Many of the sectors encompassed in the present Action Plan are of particular relevance for Greenland, as acknowledged by the Commission in a recent communication to the Council and the European Parliament . Whenever possible and appropriate, Greenland should be involved in the implementation of this Action Plan through Community programmes open to Greenlandic participation.

In addition, and looking to the wider North, the EU will also pursue its cooperation with the US and Canada in the context of the New Transatlantic Agenda  with the US and the Joint Statement on Northern Co-operation with Canada . This can help build favourable synergies in fields such as environment, energy, nuclear safety, public health, indigenous peoples and the promotion of sustainable development in circumpolar and adjacent regions.

The wide range of activities to be carried forward under the Northern Dimension Action Plan, and the need for all partners to work together in a spirit of complementarity and subsidiarity, makes it imperative to have adequate and timely mechanisms for monitoring progress, reviewing achievements and identifying shortcomings. These mechanisms can only be effective if based on the contributions of all partners involved.

The availability of up-to-date and readily-accessible information on the Northern Dimension activities and achievements will also enhance the visibility of our work for all partners concerned (and for the public as a whole), making it possible to clearly identify what has been achieved and by whom, what is underway or under preparation and what remains to be done.

In the context of the First Action Plan, the European Commission has already provided two annual reports on Northern Dimension activities . A third such report will be produced by the end of 2003. These documents are essential in informing both the EU Council and the European Parliament on the progress made in the implementation of the Northern Dimension Action Plan, fully involving these institutions in the monitoring and review mechanism. Other reports, such as the annual progress report on EU-Canada co-operation on northern issues , can also contribute to the overall assessment of the progress achieved on specific issues in the Northern Dimension region.

The 2001 and 2002 Commission reports gave a comprehensive overview of activities carried out by the European Community in pursuit of Northern Dimension objectives and priorities, but were limited in that they could not give a comprehensive account of relevant activities carried out by other Northern Dimension partners. It will be important to correct this deficiency during the implementation of the Second Action Plan.-. In accordance with its overall co-ordination role, the European Commission will prepare these comprehensive annual reports, drawing on contributions received from all partners

In addition to these annual reports (and as the basis on which later reports can be prepared), it will also be useful to consider the establishment of an Internet-based system of providing timely updates on key activities. Such a system, whose effectiveness would very much depend on the active contributions of all partners, could be prepared in connection with the entry into force of the present Action Plan.

Building on this regular and comprehensive reporting, Northern Dimension partners will be able to keep the progress and achievements of the Action Plan under regular review. To this end, a meeting of Senior Officials should be convened every second year to assess the implementation of the Action Plan, review progress to date and identify any areas in which a further stimulus might be necessary. Political guidance on the implementation of the Action Plan, and on its future development will have to be provided by Ministerial Conferences, to be held every second year, when the Senior Officials meeting is not convened. In this connection, the Ministerial Conference in 2005 will be able to make recommendations on the follow-up to the Second Action Plan, and on the issues to be addressed after 2006.

The meetings of Senior Officials should normally be held in the spring of every second year, and should bring together representatives from European Union institutions, EU Member States, Partner Countries, Northern Dimension regional bodies, and the international financial institutions. The participation of representatives of regional and local authorities, of the business community and of civil society should be encouraged.

To provide for the broad participation of civil society groups in reviewing progress under the Action Plan, it would also be helpful if the European Economic and Social Committee would be able to organise annual Fora on the implementation of the Action Plan, bringing together representatives from the social and economic organisations represented in the Committee. This would build on the useful experience of similar fora organised in 2001 and 2003. In the same vein, it would be valuable if the EU Committee of the Regions might organise similar fora on a regular basis, bringing together representatives of local and regional administrations of the Northern Dimension area.

The priority objectives to be addressed under the Second Northern Dimension Action Plan are set out in the main text, for each of the five priority sectors included in the Action Plan. This annex, which represents an integral part of the Action Plan, elaborates on these objectives by setting out the specific activities, in terms of both dialogue and cooperation actions, which Northern Dimension partners will pursue in implementing the Action Plan and addressing these priority objectives.

Many of the activities listed here have been proposed by EU Member States, partner countries or regional bodies in the context of the wide consultation process carried out by the Commission from November 2002 to March 2003. Others have been proposed by the Commission, building on and strengthening existing EU dialogues or programmes. The active implementation of these activities, by Northern Dimension partners as a whole or bilaterally, by the different regional bodies and other stakeholders, will ensure that the wide range of issues covered by the Northern Dimension are most effectively addressed.

The list of activities given here should not however be considered as exhaustive, since there are other initiatives under implementation or being developed by individual partners that can also contribute effectively to the achievement of the key Action Plan objectives. It will be important in reviewing progress towards these objectives that all relevant activities are kept in mind.

In the implementation of all the objectives of the Action Plan, a key role will be played by the EU-Russia PCA dialogue, by Community programmes such as Tacis, Phare and INTERREG, and in the future by Structural Funds (also for the new Member States) and by the activities of all Northern Dimension partners, including regional bodies and other stakeholders.

1. Economy, Business, Infrastructure

• Continued effective pursuit by the European Union and the Russian Federation of the Partnership and Co-operation Agreement dialogue in fields related to economic reform, regulatory convergence and competition policy. Continued efforts in the framework of the creation of an EU/Russia Common European Economic Space, building on the joint concept which should be agreed by end-2003. This means, inter alia, removal of non-tariff barriers to trade.