Bruselj, 6.10.2004

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SPOROČILO KOMISIJE SVETU IN EVROPSKEMU PARLAMENTU

Strateški dokument Evropske Komisije o napredovanju procesa širitve {SEK(2004) 1199, 1200} SPOROČILO KOMISIJE SVETU IN EVROPSKEMU PARLAMENTU

Strateški dokument Evropske komisije o napredovanju procesa širitve

Uvod

Širitev EU z desetimi novimi državami članicami dne 1. maja 2004 je še utrdila enotnost evropske celine. Zgodovinski in politični argumenti v prid širitve so na dlani: utrjuje mir, blaginjo, stabilnost in varnost, prav tako pa je tudi ustvarila znatno gospodarsko korist.

Bolgarija in Romunija sta sestavni del tega procesa širitve, ki se je začel leta 1997. Obe državi sta blizu zaključku pogajanj. Cilj EU je januarja 2007 obe državi sprejeti v članstvo, če bosta na to pripravljeni.

Po oceni Komisije v letošnjih rednih poročilih se potrjuje uspešnost predpristopne strategije Unije za Bolgarijo in Romunijo. Pričakovanje širitve je v obeh državah še pospešilo proces preoblikovanja. Komisija si bo prizadevala, da bi bil dosežen cilj Evropskega sveta, uspešno zaključiti pogajanja z Bolgarijo in Romunijo v letu 2004, in sicer na podlagi njunih lastnih zaslug, z namenom podpisa pristopne pogodbe na začetku leta 2005.

Evropski svet je junija 2004 sklenil, da se pristopna pogajanja s Hrvaško začnejo v začetku leta 2005. Komisija spodaj navaja predloge za okvir teh pogajanj, ki jih je izdelala na podlagi izkušenj iz trenutnega procesa širitve. Komisija prav tako predstavlja vsebino predpristopne strategije za Hrvaško, skupaj s finančnimi instrumenti.

V skladu s sklepi Evropskega sveta z decembra 2002 Komisija v ločenem dokumentu podaja oceno o tem, ali Turčija izpolnjuje kopenhagenska politična merila in ali naj se začnejo pristopna pogajanja[1]. Vse države zahodnega Balkana imajo možnost postati države kandidatke. Nekdanja jugoslovanska republika Makedonija je že zaprosila za članstvo, na zahtevo Sveta Komisija že pripravlja mnenje o tej prošnji.

Bolgarija in Romunija

Napredek pri doseganju meril za članstvo

V rednih poročilih je ocenjen napredek Bolgarije in Romunije pri doseganju meril za članstvo v smislu zakonodaje in ukrepov, ki so bili sprejeti ali izvedeni.

Letošnje redno poročilo ocenjuje zmožnost Bolgarije in Romunije, da izpolnita vse obveznosti, ki jih prinaša članstvo. V poročilih je ocenjen napredek v zadnjem letu, prav tako pa tudi napredek, ki ga je vsaka od držav dosegla glede na Mnenja iz leta 1997 in prejšnje dosežke pri izvajanju obvez, naloženih v pogajanjih.

Bolgarija in Romunija še naprej izpolnjujeta kopenhagenska politična merila. Potrebne so izboljšave, še posebej v reformi javne uprave, delovanju sodnega sistema in v boju proti korupciji.

Bolgarija in Romunija izpolnjujeta merilo o delujočem tržnem gospodarstvu. Bolgarija, z vztrajanjem na poti reform, in Romunija, z učinkovitim izvajanjem programa strukturnih reform, bi morali uspešno shajati s konkurenčnimi pritiski in tržnimi silami znotraj Unije.

Bolgarija in Romunija sta napredovali pri nadaljnjem sprejemanju pravnega reda Evropskih skupnosti in sta na splošno izpolnili obveze, sprejete med pogajanji. Sta na poti zaključka prenosa zakonodaje, ki ga zahteva pristop, če bosta seveda tudi v prihodnje napredovali z isto hitrostjo. Treba je nadaljevati s prizadevanji za razvoj zadostnih upravnih in sodnih zmogljivosti za izvajanje in utrditev pravnega reda.

Sklepi rednega poročila o Bolgariji in Romuniji so v Prilogi1. Redna poročila opozarjajo na številna področja, kjer so potrebne izboljšave v smislu političnih in gospodarskih meril v zvezi s sprejetjem, izvajanjem in izvrševanjem pravnega reda Evropskih skupnosti. Treba je vztrajati pri izboljšavah, da bodo lahko ugotovljene napake odpravljene pred pristopom.

Zaključek pristopnega procesa

Pristopna pogajanja so precej napredovala. Okvir za financiranje pristopa Bolgarije in Romunije je bil določen spomladi leta 2004. To je v juniju 2004 omogočilo začasno zaprtje poglavij za Bolgarijo. Za Romunijo je treba zaključiti pogajanja v treh poglavjih (o konkurenčnosti, okolju in pravosodju ter notranjih zadevah) in delih Poglavja 31 (Drugo). Dodatno si je treba prizadevati še posebej na področju poglavja o konkurenčnosti v zvezi z državno pomočjo, na področju poglavja o pravosodju in notranjih zadevah v zvezi s pravosodnim sodelovanjem, z bojem proti korupciji ter organiziranemu kriminalu in upravljanjem meja.

Glede na prakso iz prejšnjih širitev, od nekega trenutka dalje pri pogajanjih ne bo mogoče upoštevati novega pravnega reda Evropskih skupnosti. Glede na to, da so pogajanja že precej napredovala in da naj bi Pristopno pogodbo podpisali čim prej v letu 2005, Komisija meni, da morajo pogajanja pokrivati celotni pravni red Evropskih skupnosti, kakor je bil sprejet in objavljen do 1. oktobra 2004. Bolgarija in Romunija naj zato pošljeta stališča o vseh novih določilih pravnega reda Evropskih skupnosti, sprejetih do tega datuma. To bo omogočilo dogovarjanje o kakršni koli prehodni ureditvi pred koncem pogajanj.

Rezultati pristopnih pogajanj, v smislu dogovorjene prehodne ureditve in tehničnih prilagoditev pravnemu redu Evropskih skupnosti kot rezultatu širitve, bodo vključeni v Pristopno pogodbo . Delo na osnutku te pogodbe se je začelo julija 2004.

Ko strinjanje s Pogodbo potrdijo vse stranke, Komisija v skladu s členom 49 Pogodbe EU izda mnenje. Nato je potrebna privolitev Evropskega parlamenta, potem pa sklep Sveta o sprejemu Bolgarije in Romunije. Zadani cilj je podpis Pristopne pogodbe zgodaj leta 2005, da lahko začne veljati 1. januarja 2007. Po podpisu bo Pogodba predložena v ratifikacijo sedanjim in bodočim državam članicam.

Komisija meni, da mora biti postopek odločanja o zahtevah Bolgarije in Romunije glede prehodne ureditve o aktih institucij, sprejetih med 1. oktobrom 2004 in datumom pristopa, poenostavljen in pospešen, kar bo zagotavljalo gladek prehod od predpristopnega do popristopnega sprejemanja odločitev. Poleg tega se položaj Sveta kot aktivnega opazovalca pri odborih, ki jim predseduje Komisija, pa tudi drugih institucijah, odobri s podpisom Pogodbe.

Komisija budno spremlja, ali Bolgarija in Romunija izpolnjujeta obveznosti, ki sta jih sprejeli v pogajanjih. Zelo pomembno je, da se te obveznosti izvajajo po načrtu. Komisija bo zato tudi po zaključku pogajanj še naprej nadaljevala z intenzivnim spremljanjem.

Na podlagi analize iz rednih poročil bo Komisija napredovanje spremljala z intenzivno uporabo struktur pridružitvenih sporazumov in vseh drugih instrumentov za spremljanje, vključno z medsebojnimi pregledi. Od novembra 2005 bo Komisija objavljala letna celostna poročila o spremljanju, ki bo pokrivalo vsa poglavja pravnega reda Evropskih skupnosti, javne uprave, pravosodja in boja proti korupciji ter rezultate gospodarskih reform.

Komisija bo opozorila na kakršne koli zamude, težave v gospodarskih reformah ali pri izpolnjevanju obveznosti, še posebej prek zgodnjih opozorilnih pisem na politični ravni, prav tako pa bo o tem na podlagi trenutnih postopkov obvestila Svet. Za primere resnih nezadostnosti bo Pristopna pogodba vsebovala tri zaščitne klavzule kot mehanizem v skrajni sili (za splošne gospodarske zadeve, zadeve notranjega trga in pravosodja ter notranjih zadev).

Zaradi velikega števila obveznosti, ki jih je treba izpolniti, je obdobje med začetkom in koncem pogajanj dolgo, pa tudi datum pristopa Bolgarije in Romunije je še daleč, zato Komisija meni, da bi pristopna pogodba lahko vsebovala posebne zaščitne ukrepe. O teh zaščitnih ukrepih, ki so bili v pogajanjih z Bolgarijo že dogovorjeni, se je treba dogovoriti tudi pri Romuniji. To bi Komisiji omogočilo, da lahko Svetu kadar koli pred začetkom veljavnosti pristopne pogodbe predlaga preložitev datuma pristopa Bolgarije in Romunije za eno leto, do januarja 2008, če obstaja jasen dokaz, da ti dve državi na številnih področjih ne bosta mogli izpolniti zahtev za članstvo do 1. januarja 2007.

Do pristopa bo Unija Bolgariji in Romuniji pomagala pri pripravah na članstvo prek predpristopne strategije . Ta vključuje znatno finančno pomoč za obe državi pri dokončanju preostalih korakov, potrebnih za popolno izpolnjevanje meril za pristop.

Po pridružitvi Uniji

Proces znatne okrepitve upravnih in pravosodnih zmogljivosti se bo moral nadaljevati tudi po tem, ko se Bolgarija in Romunija pridružita Uniji. Zato Komisija ponuja poseben prehodni program za oblikovanje ustanov. V tem kontekstu bodo še naprej uporabljeni nekateri instrumenti, ki jih financira skupnost, ki so se doslej izkazali kot koristni, na primer tesno medinstitucionalno sodelovanje.

V skladu s Pogodbo o EU Bolgarija in Romunija ob pristopu ne bosta uvedli evra. V zvezi z uporabo schengenskega pravnega reda bo do odprave nadzora nad notranjimi mejami prišlo šele nekoč po pridružitvi in za vsako od držav posebej, ko bo zadostila zahtevam schengenskega pravnega reda.

Bolgarija in Romunija bosta morali zaprositi za sprejem v Evropski gospodarski prostor (EGP), do pristopa pa bo prišlo hkrati s pristopom v EU. Neposredno po podpisu Pristopne pogodbe bo zaradi širitve treba prilagoditi tudi druge mednarodne dogovore.

Sklepi

Letošnja redna poročila kažejo, da sta Bolgarija in Romunija še napredovali pri izvajanju kopenhagenskih meril. Bolgarija in Romunija izpolnjujeta politična merila. Ob upoštevanju procesa, ki sta ga dosegli ti državi, rezultatov pri izpolnjevanju obveznosti in pripravljalnega dela, Komisija pričakuje, da bosta ti državi izpolnili ekonomska merila in merila pravnega reda Evropskih skupnosti in da bosta na članstvo pripravljeni do 1. januarja 2007.

Komisija si bo prizadevala, da bi bil dosežen cilj Evropskega sveta, uspešno zaključiti pogajanja z Bolgarijo in Romunijo v letu 2004, in sicer na podlagi njunih lastnih zaslug, z namenom podpisa pristopne pogodbe na začetku leta 2005.

HRVAšKA

Predpristopna strategija

Evropski svet v Bruslju je junija 2004 sklenil, da postane Hrvaška država kandidatka, s katero se bodo začela pogajanja v začetku leta 2005, in Komisiji naložil, da za Hrvaško pripravi predpristopno strategijo. Komisija je mnenja, da je treba okrepljeno predpristopno strategijo za države kandidatke, ki jo je sprejel Evropski svet v Luksemburgu decembra 1997, razširiti tudi na Hrvaško. Elementi te strategije so opisane spodaj.

Postopek pregleda, ki je namenjen oceni napredka države kandidatke v smeri članstva, se bo za Hrvaško začel uporabljati z letom 2005. To pomeni, da bo Komisija jeseni 2005 začela izdajati redna poročila o Hrvaški. V smislu stabilizacijsko-pridružitvenega procesa je Komisija že predlagala Evropsko partnerstvo na podlagi ugotovitev mnenja o hrvaški prošnji za članstvo. Ta dokument bo vodilo priprave za pristop Hravške.

Hrvaška mora kot država kandidatka imeti koristi od vseh treh predpristopnih finančnih instrumentov: Phare je namenjen oblikovanju ustanov in gospodarski ter socialni koheziji, ISPA okolju in transportu, SAPARD pa razvoju podeželja. Komisija bo predlagala spremembe uredb za te tri predpristopne instrumente in tako njihov obseg s 1. januarjem 2005 razširila še na Hrvaško. Ob upoštevanju potreb za ustrezno pripravo za pristop Hrvaške Komisija predlaga, da se Hrvaški v letu 2005 dodeli 105 milijonov EUR (80 milijonov EUR za program Phare in 25 milijonov EUR za program ISPA) in 140 milijonov EUR v letu 2006 ( 80 milijonov EUR za program Phare, 35 milijonov EUR za program ISPA in 25 milijonov EUR za program SAPARD). Ti zneski bodo financirani iz predpristopnih skladov po postavki 7 trenutnih finančnih perspektiv. Komisija je predlagala Svetu, naj ustvari nov predpristopni instrument (IPA), iz katerega bi Hrvaška lahko črpala od leta 2007 dalje, na podlagi trenutnih predpristopnih instrumentov Phare, ISPA in SAPARD. Zneski, ki bodo Hrvaški dodeljeni od leta 2007 naprej, bodo določeni v okviru naslednje finančne perspektive.

Stabilizacijsko-pridružitveni sporazum (SPS), s Hrvaško podpisan oktobra 2001, je sedaj ratificiran. Zavoljo izvajanja s trgom povezanih vidikov SPS-a je marca 2002 začel veljati Začasni sporazum. Ustanovljeni bodo tudi Stabilizacijsko-pridružitveni svet, odbori in pododbori. Komisija predlaga, da se strukture SPS-a ne uporabljajo le za pokrivanje tem, povezanih z izvajanjem sporazuma, temveč tudi kot forumi za razlago pravnega reda Evropskih skupnosti in napredka v pregledih usklajevanja Hrvaške zakonodaje s pravnim redom Evropskih skupnosti in skladno z obvezani, sprejetimi v pogajanjih.

Okvirni sporazum, ki bo dovoljeval sodelovanje Hrvaške v programih in agencijah Skupnosti, bi moral začeti veljati v prvi polovici 2005, potem ko ga ratificirajo ustanove EU in Hrvaška. Finančne prispevke Hrvaške tem programom se lahko delno krije iz sklada Phare.

Komisija je mnenja, da se mora, poleg zgoraj navedenih elementov za okrepljeno predpristopno strategijo, nadaljevati tudi okrepljen politični dialog s Hrvaško pri obravnavi tem, izpostavljenih v Mnenju. Sem spadajo odnosi z Mednarodnim kazenskim sodiščem za bivšo Jugoslavijo, manjšinske pravice, vračanje beguncev, pravosodna reforma, regionalno sodelovanje in boj proti korupciji. Hrvaška mora biti še posebej zavezana regionalnemu sodelovanju znotraj okvira Stabilizacijsko-pridružitvenega procesa za zahodni Balkan. Komisija bo te teme tesno spremljala na rednih sestankih s Hrvaškimi organi in o tem obveščala Svet.

Okvir pogajanj

Evropski svet v Bruslju je junija 2004 sklenil, da „pri pogajanjih s Hrvaško Svet določi splošni pogajalski okvir, ki bo slonel na izkušnjah iz petega širitvenega procesa“. Komisija predlaga, naj okvir temelji na naslednjih načelih:

- Pogajanja s Hrvaško naj temeljijo na pogojih za pristop, določenih na zasedanju Evropskega sveta v Köbenhavnu leta 1993. Ti pogoji so ustrezna merilo pripravljenosti države članice za izpolnjevanje obvez članstva in predstavljajo jasno vodilo pri procesu reform.

- Napredovanje pogajanj je v celoti odvisno od trajnosti političnih reform in izpolnjevanja obvez Hrvaške na področju regionalnega sodelovanja z drugimi državami nekdanje Jugoslavije ter drugih mednarodnih obveznosti, npr. sodelovanja z Mednarodnim sodiščem za vojne zločine v nekdanji Jugoslaviji.

- V skladu s Pogodbo o Evropski uniji in Ustavo za Evropo bo Komisija priporočila prekinitev pogajanj v primeru resnega in vztrajnega kršenja načel svobode, demokracije, spoštovanja človekovih pravic in temeljnih svoboščin ter vladavine prava, na katerih temelji Unija. Svet bo lahko odločal o takšnem priporočilu s kvalificirano večino držav članic.

- Pogajanja se bodo odvijala po načelu lastnih zaslug. Kakršna koli prehodna ureditev mora biti omejena tako glede področja kot tudi trajanja in na način, da ne bo imela posebnega vpliva na konkurenco ali delovanje notranjega trga.

- Takoj po formalnem začetku pristopnih pogajanj s Hrvaško bo Komisija organizirala uradni pregled pravnega reda Evropskih skupnosti, imenovan „pregled usklajenosti zakonodaje“, s katerim bo ta obrazložen hrvaškim organom in s katerim se bo uvodno pokazalo, katera vprašanja bodo najverjetneje izpostavljena med pogajanji.

- Po pregledu usklajenosti določenega poglavja, bo Komisija, na podlagi najnovejšega mnenja o Hrvaški, zanj predlagala začetek pogajanj, če bo Hrvaška primerno pripravljena.

- Hitrost pogajanj bo odvisna od ustreznega prenosa in izvajanja pravnega reda Evropskih skupnosti s strani Hrvaške, vključno z uspešnim in učinkovitim izvajanjem v upravnih in pravosodnih strukturah.

- Komisija bo Svetu predlagala merila za začasno zaprtje posameznih poglavij še pred začetkom pogajanj o teh poglavjih. Ta merila bi se lahko nanašala na usklajenost zakonodaje in na njeno zadovoljivo izvajanje. Tak pristop se je že izkazal za uspešnega, zlasti pri poglavju o konkurenci.

- Napredovanje pogajanj je odvisno od izpolnjevanja obvez Hrvaške v okviru Stabilizacijsko-pridružitvenega sporazuma, zlasti tistih obvez, ki odražajo zahteve pravnega reda Evropskih skupnosti na področju konkurence. Takšne zahteve je treba izpolniti, še preden se poglavje lahko začasno zapre.

- Komisija bo pazljivo spremljala napredek Hrvaške pri pristopu, in sicer z uporabo vseh instrumentov, ki so na voljo.

SKLEPI N PRIPOROčILA

Glede na zgoraj navedeno so sklepi in priporočila Komisije naslednji:

Letošnja redna poročila kažejo, da sta Bolgarija in Romunija v lanskem letu še napredovali pri izvajanju pristopnih meril.

Bolgarija in Romunija izpolnjujeta politična merila. Ob upoštevanju napredka, ki so ga dosegle te države, rezultatov pri izpolnjevanju obveznosti in pripravljalnega dela Komisija pričakuje, da bosta ti državi izpolnili ekonomska merila in merila pravnega reda Evropskih skupnosti in da bosta na članstvo pripravljeni do januarja 2007.Komisija si bo prizadevala, da bi bil dosežen cilj Evropskega sveta, uspešno zaključiti pogajanja z Bolgarijo in Romunijo v letu 2004, in sicer na podlagi njunih lastnih zaslug, z namenom čimprejšnjega podpisa pristopne pogodbe v letu 2005.

Redna poročila opozarjajo na številna področja, kjer so potrebne izboljšave v smislu političnih in gospodarskih meril v zvezi s sprejetjem, izvajanjem in izvrševanjem pravnega reda Evropskih skupnosti. Treba je vztrajati pri izboljšavah, da bodo lahko ugotovljene napake odpravljene pred pristopom. Da bi analizirala napredek in omogočila uspešno članstvo v Evropski Uniji, bo Komisija izvajala poglobljeno nadzorovanje in o tem redno poročala Svetu. Komisija bo od novembra 2005 Svetu in Parlamentu izdajala pregledna poročila o nadzorovanju. Komisija meni, da je treba v pristopno pogodbo uvesti nekatere posebne zaščite, ki bi Komisiji omogočile, da Svetu priporoči preložitev datuma pristopa Bolgarije in Romunije za eno leto, do januarja 2008, če obstaja jasen dokaz, da ti dve državi na številnih področjih ne bosta mogli izpolniti zahtev za članstvo do 1. januarja 2007.

Komisija priporoča, da je treba okrepljeno predpristopno strategijo za države kandidatke, ki jo je sprejel Evropski svet v Luksemburgu decembra 1997, razširiti tudi s Hrvaško.

Komisija opozarja, da se je Evropski svet odločil začeti pogajanja s Hrvaško zgodaj leta 2005 in predlaga, da se pogajalski okvir za Hrvaško, ki temelji na načelih, začrtanih v tem dokumentu, v ta namen tudi dokončno oblikuje.

ANNEX: CONCLUSIONS OF THE REGULAR REPORTS ON BULGARIA AND ROMANIA

Bulgaria

Since the Commission concluded in its 1997 Opinion that Bulgaria fulfilled the political criteria, the country has further consolidated and deepened the stability of its institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities. This trend has been confirmed over the past year. Bulgaria continues to fulfil the political criteria.

Tangible progress was made in public administration reform with the adoption of amendments to the Civil service law. The specific structures for co-ordinating European integration continue to function well, and in view of Bulgaria’s aim of building a qualified and efficient civil service by the time of accession this progress needs to spread throughout the public administration. Also, interdepartmental coordination should improve. Attention should be given to the legal framework for local and regional administration, which will play an important role in the implementation of the acquis .

Building on important reforms of the judiciary system achieved in recent years, there have been positive developments with regard to the recruitment and appointment of judges. Still, certain key parts of the reform of the judiciary remain to be adopted. The complexity and efficiency of the penal structures, in particular in the pre-trial phase, is a matter of concern. Strong efforts will be necessary to foster Bulgaria’s capacity to prosecute organised crime and corruption, which involves further reforms in the structures of the judiciary and of the police.

Bulgaria has implemented several measures in the fight against corruption, but it remains a problem. Renewed efforts are needed, including tackling high level corruption.

Bulgaria continues to respect human rights and fundamental freedoms. Further progress should be pursued in specific areas to improve their implementation in practice. Comprehensive legislation on anti-discrimination was adopted but the independent body required by the law has not yet been established. The freedom of expression is ensured by law. However, the legal framework regarding libel and defamation by journalists needs to be revised. Efforts to address inadequate living conditions in certain prisons and problems of ill-treatment in custody need to be sustained. Trafficking in human beings is a serious problem and needs to be addressed. A new law on public health should address most of the issues related to the placement of mentally disabled people. The structures responsible for child welfare and their co-ordination with the relevant ministries need to be reinforced.

Efforts have been made in the past years to develop a framework to tackle the problems faced by minorities, but the situation on the ground has not evolved much. Sustained efforts including allocation of appropriate financial resources will be necessary to effectively implement the intentions and to combat in particular anti-Roma prejudice.

The 1997 Opinion already acknowledged the substantial reform efforts undertaken by the Bulgarian authorities to transform their economy. Since the Opinion economic structure and performance have significantly improved. Macroeconomic stability has been achieved soon after the Opinion, profound economic reforms have been carried out over the entire period while the Bulgarian authorities’ commitment to the economic requirements of EU accession has been sustained.

Hence, it is concluded that Bulgaria is a functioning market economy. The continuation of its current reform path should enable Bulgaria to cope with competitive pressure and market forces within the Union.

Improvements can be made in sustaining macroeconomic stability and in deepening structural reforms. The current account deficit has widened substantially in 2003 and could, if continuing, warrant a further policy response. The business environment, in particular the efficiency of the administrative and judicial system as well as regulatory procedures, should be further improved to increase Bulgaria’s attractiveness for investment. In spite of significant achievements, privatisation still needs to be completed. While the legal framework is largely in place, the actual restructuring and liberalisation of the network industries need to progress further in order to enhance competition and efficiency. The ongoing reduction in unemployment should be further supported by reducing rigidities in labour market regulation.

Since the Opinion, Bulgaria has made good progress in adopting the acquis and more recently, has also made progress in gradually building up the administrative capacity to implement and effectively enforce the acquis .

Over the past year, Bulgaria has made further progress in the vast majority of the chapters of the acquis and is on track to complete the required legislative transposition before the planned date of accession if the current pace of progress is maintained.

Overall, Bulgaria has now achieved a reasonable degree of alignment with the acquis in the large majority of areas. It is also on track in developing adequate administrative capacity to implement the acquis in a considerable number of fields. Bulgaria has established most of the necessary institutional structures. Nevertheless, in some sectors, further efforts and resources are required to strengthen the capacities of these institutions and to ensure their effective functioning. In order to cover the remaining gaps, due attention should be given to the full and timely implementation of the strategies and action plans for the reinforcement of administrative capacity already approved in these areas.

In the field of internal market, Bulgaria has continued to make progress in most areas as regards the free movement of goods in terms of transposition of the acquis and the development of the administrative capacity. However, further efforts are required to develop the administrative capacity to implement the acquis on industrial products and as regards foodstuff and food safety. Mutual recognition clauses are still to be introduced into the Bulgarian legislation falling under the non-harmonised areas. Alignment of the legislation on public procurement needs to be completed. As regards free movement of persons , some progress was made in the field of mutual recognition of professional qualifications but work is still needed on the framework legislation for mutual recognition and with regard to the future co-ordination of social security systems. As regard the right for establishment and the freedom to provide services , efforts are required to unequivocally eliminate the remaining restrictions and discriminatory measures on foreigners despite some corrective actions. As regard financial services, major parts of the acquis on insurance remain to be transposed. In the area of free movement of capital , Bulgaria still has to adopt legislation on capital movements and payment systems. Efforts to improve the framework in the fight against money laundering should be maintained.

As regards company law , particular attention should be paid to the effective enforcement of industrial and intellectual property rights, in particular through strengthening border controls and improving co-ordination between the law enforcement bodies. In the area of competition , Bulgarian has further updated its legislative framework and further strengthened its administrative capacity. Sustained efforts are required in order to continue to improve the quality of its State aid enforcement.

Regarding agriculture , Bulgaria has continued to make good progress in the transposition process. Further strengthening of administrative structures has been noted. However, significant work is still needed in the veterinary field and in the setting up of the paying agency and IACS. With regard to fisheries , legal alignment has taken place according to schedule. However, further progress has to be made regarding the administrative and technical capacity for inspection and control.

As regard transport , Bulgaria has made steady progress in transposing the acquis in most sectors, however administrative capacity should be further strengthened. Further efforts are needed to align the inland waterway legislation. Particular attention should be devoted to improving the maritime safety record and to the building up and reinforcement of the necessary capacities and structures for Port State and Flag State control.

In the area of taxation , Bulgaria’s indirect legislation is to a significant extent aligned with the acquis , notably as far as VAT is concerned. Further transposition is required as regards excise duties and direct taxation. Efforts should continue as concerns specifically interconnectivity with EU systems.

On social policy and employment , progress has continued in alignment with the acquis . Further efforts for the effective implementation of the transposed legislation need to be undertaken in particular in the areas of labour law, occupational safety and health, public health, anti-discrimination as well as equal opportunities for women and men. Administrative capacity needs to be strengthened, inter alia with regard to ESF management and implementation.

Regarding energy , Bulgaria is making good progress in its legislative alignment and in its preparation to the internal energy market. The restructuring and privatisation of the energy sector is progressing well but particular efforts are still needed to improve energy efficiency and the use of renewable energy. Bulgaria must continue to respect its commitments on nuclear safety, notably as regards closure commitments for certain units of the Kozloduy nuclear power plant, and to ensure a high level of nuclear safety in its installations.

Although a reasonable degree of alignment with acquis in the telecommunications has been reached, Bulgaria needs to adopt further implementing legislation and ensure that the regulatory body is strengthened.

Concerning regional policy and co-ordination of structural instruments , Bulgaria has made progress notably with regard to establishing the legal framework and designating institutional structures. However, considerable efforts are still needed to improve the administrative capacity in key Ministries and improving the capacity of other relevant bodies, such as the intermediate bodies, and other relevant players both at central and regional level. Priority must also be given to the setting up of efficient and integrated monitoring and evaluation systems as well as to further improving the financial management and control systems. Attention must be paid to observance of an ambitious planning schedule for the National Development Plan and to the full involvement of relevant partner organisations in this process.

With regard to the environment , Bulgaria has achieved a reasonable degree of alignment with the acquis and the necessary administrative structures are in place. However, further strengthening of the enforcement authorities notably at regional and local level is required as well as the provision of adequate financial resources for State and private sector investment.

In the area of consumer and health protection , a reasonable degree of alignment with the acquis has been reached in the area of safety related measures. However, further alignment is particularly needed with regard to the non-safety related measures and Bulgaria should ensure that the administrative structures in place can effectively enforce legislation and carry out market surveillance activities.

In the area of justice and home affairs , further good progress could be noted as regards the management of the future external borders. However, significant further efforts are needed to strengthen the law enforcement capacity and policy formulation in order to step up the fight against organised crime and corruption. Bulgaria needs to press ahead and dedicate adequate resources to fundamental reforms of the police and of the judiciary, including the reform of the pre-trial phase and the implementation of the strategies against crime. Overall, the full and timely implementation of the main strategies and action plans in the area of justice and home affairs, together with the entry into force of the planned amendments to the legislation on the penal procedure, legal aid, asylum, mediation and forfeiture of criminal assets should address the bulk of the issues covered in this chapter.

Regarding customs , Bulgaria has achieved a high degree of legislative alignment and has improved its administrative capacity. Efforts should continue in the IT area as well as to further improve revenue-collection and controls.

Further progress has been made in strengthening financial control in Bulgaria. More effort is needed to ensure the protection of the EC financial interests and of the euro against counterfeiting, as to well as to further strengthening the administrative capacity to implement sound financial control systems.

Overall, the capacity of the law enforcement and regulatory bodies to ensure a level playing field within the internal market through effective implementation and enforcement of the acquis must be enhanced. The continued reinforcement of the judicial system and administrative structures in certain areas will require particular attention, notably as regards public procurement, competition and justice and home affairs. Bulgaria should devote more efforts and financial resources to make the necessary investments to apply the acquis , notably in agriculture (in particular in the veterinary field), transport and environment. Continued efforts are required to establish the necessary administrative capacity to ensure the sound and efficient management of EU funds, notably the Structural Funds.

In the accession negotiations, all 31 chapters have been provisionally closed. The commitments made in the negotiations are with a view to accession in 2007. Bulgaria is generally meeting the commitments that it has made during the negotiations although delays have been noted in specific areas.

Bearing in mind the progress achieved since the Opinion, the level of alignment and administrative capacity that Bulgaria has achieved at this point in time and its track record in implementing the commitments that it has made in the negotiations, and taking into account their preparatory work in progress, the Commission expects Bulgaria to assume the obligations of membership in accordance with the envisaged timeframe. In the period leading up to accession, Bulgaria needs to continue its preparations, in line with the commitments it has made in the accession negotiations.

Romania

Since the Commission concluded in its 1997 Opinion that Romania fulfilled the political criteria, the country has further consolidated and deepened the stability of its institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities. This trend has accelerated over the past year. Romania continues to fulfil the political criteria.

Progress was made to address the need for administrative and judicial reforms. A public administration reform strategy was launched in May 2004, covering the area of civil service reform, decentralisation and deconcentration, and policy co-ordination. A positive start was made to the reform of the civil service. The establishment of the Chancellery of the Prime Minister should help to improve policy coordination and consistency. The use of emergency ordinances was restricted to “extraordinary circumstances”, but this has not yet led to a decrease of their use. The laws on the freedom of information and transparency in the legislative process should still be fully implemented. The revision of the Constitution in October 2003 contributed to streamlining the parliamentary process by giving both chambers primary responsibility for different types of legislation. Efforts to improve the policy-making and legislative process should continue. Further efforts are also needed to strengthen local and regional governance with a view to ensuring proper implementation of the acquis at those levels.

The management of court cases and the quality of judgments needs to improve. Official surveys confirm the possibility for the executive to influence the outcome of judicial proceedings. However, organisational and legislative changes introduced in Romania’s judicial system should help to make it more independent and efficient. Their implementation on the ground is a matter of priority.

Corruption in Romania continues to be serious and widespread. Romania’s anti-corruption legislation is generally well developed, but its ability to curb corruption will depend on the effective implementation of the law. In particular, additional efforts are required to ensure the independence, effectiveness and accountability of the National Anti-Corruption Prosecution Office. It should concentrate its resources on investigating high-level corruption.

Romania continues to respect human rights and fundamental freedoms and has made further progress in several areas. The introduction of national standards for child protection services and of strict rules on inter-country adoption, which appear to be in line with the UN Convention on the rights of the child, should further improve the protection of children’s rights. As regards freedom of expression, the legal situation of journalists has improved but the economic situation of many mass media organisations remains precarious and further efforts are necessary to guarantee media independence. Although the restitution of agricultural land is almost completed, a more speedy and transparent approach is needed to further the restitution of buildings and religious property. Efforts to address the problems of ill-treatment in custody, trafficking in human beings and prison overcrowding should be sustained.

The Roma Strategy, which is explicitly aimed at addressing discrimination, is being implemented but de facto discrimination against the Roma minority remains widespread. The support for an inclusive approach to education is a positive development. The same encouraging trend has been noted in health care and employment.

The 1997 Opinion already acknowledged the substantial reform efforts undertaken by the Romanian authorities to transform their economy. Since the Opinion economic structure and performance have significantly improved. Macroeconomic stability has been achieved, profound economic reforms have been carried out while the Romanian authorities’ commitment to the economic requirements of EU accession has been sustained.

Hence, it is concluded that Romania complies with the criterion of being a functioning market economy. Vigorous implementation of its structural reform programme should enable Romania to cope with competitive pressure and market forces within the Union.

Improvements can be made in sustaining macroeconomic stability and in deepening structural reforms. Priority should be given to preserve the momentum in disinflation and safeguard the sustainability of the external position by maintaining a prudent policy mix and by further reducing the deficit of the broader public sector. To achieve this, significant improvements in enforcing financial discipline, continuous adjustments of energy prices towards cost recovery levels and improved financial performance of public enterprises are vital. Fiscal sustainability needs to be strengthened by advancing expenditure reform and further improving tax compliance. The privatisation process should be accomplished, post-privatisation disputes be settled and non-viable enterprises more actively dismantled. In key sectors, such as energy, mining and transport, perseverance in restructuring and a more manifest strive for privatisation should go hand in hand. Substantial progress in the functioning of the judiciary and the public administration, including an even and predictable application of law, is required to create an enabling business environment with a level playing field.

Since the opinion, Romania has made good progress in adopting the acquis and more recently, has also made progress in gradually building up the administrative capacity to implement and effectively enforce the acquis .

Over the past year, Romania has made further progress in the vast majority of the chapters of the acquis and is on track to complete the required legislative transposition before the planned date of accession if the current pace of progress is maintained.

Overall, alignment with the acquis has reached a fair level in the large majority of areas. The administrative capacity has been strengthened in the majority of areas but there is still room for improvement since not all the necessary institutions are yet in place. In order to cover the remaining gaps, due attention should be given to the full and timely implementation of the strategies and action plans for the reinforcement of administrative capacity already approved in these areas.

In the area of internal market , Romania has continued to make progress with the transposition of legislation in the field of the free movement of goods . However, transposition of the public procurement legislation must be completed. In addition, practices which put Romania’s commitment to open and transparent procurement procedures into question should be discontinued. Legislation has been further aligned in the area of free movement of persons , in particular as regards mutual recognition of professional qualifications and free movement of workers. Alignment needs to be completed as regards citizens’ rights and administrative and training capacities should be enhanced in general. In particular in the field of financial services, Romania achieved substantial progress in freedom to provide services . Romania should continue to pay attention to the removal of identified barriers against the right of establishment and the freedom to provide services and to the development of the insurance and financial securities markets. While alignment with the acquis on free movement of capital has further improved, outstanding restrictions to capital movements and payments should be removed and the enforcement record of the National Office for the Prevention and Control of Money Laundering needs to be improved.

Romania has continued to make progress in transposing the company law acquis as such and the acquis concerning the protection of intellectual and industrial property rights. However, the level of enforcement of such rights has not kept pace with this. Romania’s legislative alignment on accounting and auditing should be completed. While the Romanian competition legislation is broadly in line with EC anti-trust rules, current proposals needed to complete alignment of the state aid legislation are being prepared. The enforcement record of the Romanian competition authority still needs to be considerably improved in state aid matters. Recent efforts in this respect need to be stepped up. Romania needs to ensure that restructuring aid given to steel companies is in line with the Europe Agreement.

Romania made significant progress to further transpose the agricultural , veterinary and phytosanitary acquis and has strengthened its administrative capacity. However, overall administrative and enforcement capacities should be further enhanced. Particular attention should be paid to reinforcing the SAPARD Agency and to establishing the necessary elements of a functioning IACS. Upgrading plans for non-complaint establishments in the veterinary sector should be introduced with no delay. Steady progress has taken place in the fisheries sector in terms of alignment and administrative capacity. However, sustained efforts are needed to recruit sufficient staff in the Fisheries Inspectorate and provide it with adequate inspection tools. The fishing database should be established.

Romania has continued to make progress with the transposition of the transport acquis and building up the administrative structures in the areas of road, rail and aviation transport. Alignment is fairly advanced in the maritime sector. The technical state of the inland waterway fleet should be improved.

Romania has made some progress in aligning with the acquis on taxation and particular attention should now be paid to completing alignment and strengthening administrative capacity. Transposition of the acquis on social policy and employment has continued. Future efforts should focus on completing legislative alignment in the area of labour law and on strengthening the Labour Inspectorate to ensure proper implementation in the area of health and safety at work. Due attention should be paid to the promotion of social dialogue and to the improvement of the health status of the population, which is well below the EU average. Administrative capacity with regards to ESF management should be strengthened as a matter of priority. Legislative progress in the energy sector should be matched by full implementation and increased administrative capacity, in particular with regard to the internal energy market structures. The restructuring of energy markets process needs to be completed.

Romania has performed steady progress as far as industrial policy is concerned, but the key challenge is its implementation as structural weaknesses limit the capacity for enforcement. Transparency of the privatisation process should be fully ensured. Progress has continued in the area of telecommunications with liberalising the telecommunications market and completing the transposition of the acquis .

As regards regional policy and co-ordination of structural instruments, progress has been made in preparing for the implementation of structural policies with the designation of the Managing and Paying Authorities and establishing their tasks and adoption of the 2004-2006 National Development Plan. Efforts need to be continued to bring the administrative capacity up to the level required in order for Romania to reap full benefits of the structural instruments. Environment is an area where Romania has achieved a good level of alignment with the acquis in most of the sectors, whereas implementation is, in general, still lagging behind. Further transposition should concentrate on completing the alignment in the areas of horizontal legislation, air quality, waste management, water quality, nature protection and a number of other sectors. Implementation of the transposed acquis remains a key challenge and, therefore, requires enhanced efforts. It is of utmost importance that the environmental administration at all levels obtains sufficient resources in order to cope with the increasing recruitment, training and equipment needs. Strategic planning, adequate investment and financing plans also have to remain in the focus of the public services in the field of environment.

Legislative alignment on consumer and health protection is well on track and Romania has made good progress as regards improvement of administrative capacity and the general co-ordination of market surveillance activities. These efforts should be maintained and consumer movement should be strengthened.

Legislative progress has been made in many areas of justice and home affairs and especially so in migration, asylum and judicial co-operation in civil and criminal matters. However, implementation capacity should be significantly strengthened in almost all areas, as should inter-agency co-operation. Many agencies and institutions involved in law enforcement are still affected by staff shortages, which will also require enhanced training capacity. The independence of the judiciary must be ensured on the ground. As regards the fight against corruption, implementation capacity should also be significantly strengthened and the existing legislation should be rigorously enforced. Romania should implement its current plans to fully address the above issues of concern and in particular increase its administrative capacity in the relevant institutions, implement an effective reform of the judicial system, recruits and train the necessary staff and take measures that have a significant impact on corruption.

Limited progress has been made in the area of customs and legislative alignment should be completed. Internal co-ordination improved. Furthermore, any customs duties and charges having equivalent effect with regard to export and import to and from the Community will have to be abolished. Romania has pursued its efforts in the financial control area. However, the legislative framework should be completed in the area of external audit and protection of the Communities’ financial interests. Administrative capacity should be strengthened to implement sound financial system.

In a number of important sectors, the overall capacity of the public administration to implement and enforce the newly adopted legislation should be enhanced. Romania has started to address this issue through the comprehensive reform of its public administration. These concerns extend beyond the adoption of the acquis and also apply to the management of EU financial assistance. Furthermore, there are a number of areas where further efforts will be needed to complete the work, in particular as regards company law, competition policy, environment and justice and home affairs, customs and financial control.

In the accession negotiations, 27 chapters have been provisionally closed. Romania is generally meeting the commitments that it has made during the negotiations, although delays have been noted in specific areas.

Bearing in mind the progress achieved since the Opinion, the level of alignment and administrative capacity that Romania has achieved at this point in time and its track record in implementing the commitments that it has made in the negotiations, and taking into account their preparatory work in progress, the Commission expects Romania to assume the obligations of membership in accordance with the envisaged timeframe. In the period leading up to accession, Romania needs to continue its preparations, in line with the commitments it has made in the accession negotiations.

[1] Priporočilo Evropske Komisije o napredku Turčije za pristop, KOM(2004) 656.