Cross-border cooperation over the Eastern EU border: between assistance and partnership under the European Neighbourhood and Partnership Instrument

Abstract

The article explores the practices of cross-border cooperation (CBC) at the Eastern border of the European Union (EU) from the point of view of contributing to the emergence of non-hierarchical interaction patterns in the EU-neighbour relations. Using the concept of regional mobilisation, it builds upon the network of governance literature by providing a framework for including the impact of external partners on the process of creating the “shared policy spaces” transcending the external EU borders. The article analyses nine European Neighbourhood and Partnership Instrument (ENPI) CBC Programmes and argues that the partnership principle enshrined in the EU's policy approach has not yet resulted in the emergence of new, partnership type and cooperation practices. It demonstrates that although the Programmes’ institutional structures have been created on the principle of partnership, the ENPI's implementation framework is still guided largely by the traditional hierarchical mechanisms of EU external relations. As a result, the engagement of neighbouring partners remains insufficient to allow for the emergence of “shared spaces of network governance” across the EU's Eastern borders. It is suggested that the partnership principle within the ENPI CBC can be strengthened by creating more opportunities for the mobilisation of regional actors in the Eastern neighbourhood.

Keywords:

• European neighbourhood and partnership instrument
• cross-border cooperation
• European neighbourhood policy
• eastern region
• practices of network governance

Notes

The responsibilities of the joint structures under the ENPI CBC programmes are defined in detail in Article 15 of the European Commission Regulation (EC) No 951/2007 of 9 August 2007 laying down implementing rules for cross-border cooperation programmes financed under Regulation (EC) No 1638/2006 of the European Parliament and of the Council laying down general provisions establishing a European Neighbourhood and Partnership Instrument. Official Journal of the European Union, L 210/10, 10 August 2007.

The ENPI Regulation also previews the possibility for the JMA to be located in the partner state of the Eastern neighbourhood.

The rest of funding under TACIS indicative programme is allocated to the Large Scale Projects (LSP), including the following areas: development of infrastructure networks at 40–50%; promotion of environmental protection and management of natural resources at 15–25%; support to the private sector and assistance for economic development at 15–25%. http://www.europafacile.net/formulari/Tacis/TACIS%20CBC/Programma2000-2003.pdf

Guidance Note On LSP. Accessed May 28, 2012. http://www.ro-ua-md.net/images/stories/File/LSP_Guidance_note_10_May_2009-corect.pdf

For more details on Interact ENPI CBC see http://www.interact-eu.net/about_us/enpi_about_us/443/5659

The Practical Guide is the first sole working tool explaining the contracting procedures applying to all EU external aid contracts financed from the EU general budget and the 10th European Development Fund.

In this regard, Russia emphasised that while participating in the ENPI, it is not being part of the ENP. (Blockmans 2008) It had also noted its financial contribution to the joint CBC programmes and its equal partner status.

While approximately half of TACIS CBC funding over the period of 1996–2000 has been allocated to border crossings, the construction works only began in 2000. As a result, five years after the launch of the TACIS CBC programme, it had not yet impacted this area.

Such a call was made in an open letter by the Polish EU Presidency proposing such a provision to be introduced into the new ENPI regulation after 2013.

By October 2011, 37 LSP were identified in six Programmes, requesting approximately €202 million of ENPI funds (INTERACT 2011b).

Interview with an official of the European Commission, DG DEVCO, responsible for the ENPI CBC, conducted on the 26th of October 2011.

The Eastern Partnership initiative was launched in 2009 as a policy framework engaging the Eastern EU neighbouring countries, including Belarus, Moldova and Ukraine.