BLACK SEA SYNERGY INITIATIVE MARKS FIRST

UNCLAS SECTION 01 OF 02 BRUSSELS 000963

SIPDIS

STATE FOR EUR/ACE; USAID FOR E&E AND ODP/BMD

E.O. 12958: N/A
TAGS: EAID EUN ZJ XH
SUBJECT: BLACK SEA SYNERGY INITIATIVE MARKS FIRST
ANNIVERSARY


1. (U) SUMMARY: The first anniversary of the European
Commission's Black Sea Synergy Initiative provides a useful
opportunity to highlight regional cooperation. As the
initiative moves from "launch" to "implementation," funding
will be available to support local civil society groups
committed to working across national boundaries. The fact
that the foundational Synergy Initiative document includes a
specific reference to the US-supported Black Sea Trust
underscores the importance of continued dialogue on regional
issues. While initial EU-funded programs focus on the Black
Sea, it is also clear that EU officials believe that the
approach put forward within the Synergy Initiative is
relevant for other areas, including Central Asia and the
Caspian Sea region. End Summary.



2. (U) BACKGROUND: The Black Sea Synergy Initiative,
launched by the European Commission (EC) to promote regional
cooperation in a variety of fields, recently marked its first
anniversary. According to Janos Herman, former Hungarian
Ambassador to NATO and current Principal Advisor and Deputy
Political Director at the Commission for External Relations
(RELEX),the initiative is now moving from its "launch phase"
to its "implementatation phase," using a regional approach to
promote stability and help further progress on various
"frozen conflicts" which have hampered cooperation in the
region.


3. (U) An April 7, 2007 Communication from the Commission to
the Council and the European Parliament serves as the
foundational document for the Synergy Initiative. According
to that document, the accession of Bulgaria and Romania to
the European Union (EU) at the beginning of 2007 means the
"the prosperity, stability and security of our neighbors
around the Black Sea are of immediate concern to the EU". As
one senior EU official noted, the EU is no longer an
"external actor" when it comes to the Black Sea. On the
contrary, with the expansion of the EU it now an "integral"
part of the region.


4. (U) Main areas of prospective cooperation within the
Synergy Initiative include good governance; improved
security; "frozen conflicts"; energy; transport; environment;
maritime policy; fisheries; trade; research and education;
science and technology; employment and social affairs; and
regional development. As members of the EU, Bulgaria and
Romania have to adhere to EU policy in many of these areas;
through participation in the Synergy Initiative, it may be
possible to extend EU policy approaches still further within
the region.


5. (U) Within the broad framework provided by the Synergy
Initiative, three separate EU policies are especially
relevant: the pre-accession process of Turkey; the Strategic
Partnership with Russia; and the European Neighborhood Policy
involving Ukraine, Moldova, Armenia, Georgia and Azerbaijan.
Although not all these countries border the Black Sea, EC
planning documents note that "history, proximity and close
ties" make countries such as Armenia, Azerbaijan and Moldova
"natural regional actors," qualifying them for participation
in the Black Sea Synergy Initiative.


6. (U) EU policy documents also note that the Synergy
Initiative is relevant for future regional approaches that
may eventually embrace far more than the Black Sea: "The
scope of actions could extend beyond the region itself, since
many activities remain strongly linked to neighboring
regions, notably to the Caspian Sea, Central Asia and South
Eastern Europe. There would be a close link between the
Black Sea approach and an EU strategy for Central Asia.
Black Sea cooperation would include substantial
inter-regional elements. It would also take into account
other regional programs supported by international
organizations and third countries."


7. (U) FUNDING: While ambitious in scope, the Synergy
Initiative does not come with separate, stand-alone funding.
Rather, it must draw funding from other sources, most notably
the European Neighborhood Policy Instrument (ENPI).
Allocations for that instruments are estimated at one billion
euros annually, or more more than $1.5 billion. However, the
overwhelming majority of that funding is allocated to Turkey
and most of the rest is provided on a bilateral rather than
regional basis to neighboring countries. It is only the more
limited ENPI funding set aside for regional cooperation that
is also available to help promote the Synergy Initiative. In
addition, a Neighborhood Investment Facility is being created
for investments in energy, transport, environment and other
sectors.

BRUSSELS 00000963 002 OF 002




8. (U) CIVIL SOCIETY ELEMENTS: While only one of several
elements, it is the civil society component of the Synergy
Initiative that may be of most interest to the US right now.
Although relying on existing approaches to address "frozen
conflict" issues, the Synergy Initiative is meant to promote
regional cooperation and provide an environment in which it
becomes easier to resolve these conflict situations. As
Herman commented, the intent is to "create a better
atmosphere."


9. (U) Interestingly, the EU documents specifically cite the
Black Sea Trust for Regional Cooperation, managed by the
German Marshall Fund and funded by the US, as one example of
an existing program that the Synergy Initiative needs to
"take into account" as it moves forward. According to Herman,
EC officials discussed the Synergy Initiative with German
Marshall Fund counterparts before launching their program.
Moreover, the intent of the Synergy Initiative is to promote
regional discussion forums "very much like what the US is
doing".

10.(U) A Black Sea Cross Border Cooperation (CBC) program
launched as part of the European Neighborhood Policy is
viewed as a key instrument in advancing governance and civil
society concerns with the Synergy Initiative. Funding for
this program is estimated at 17 million euros (approximately
$26 million),with another five million euros (approximately
$8 milion) set aside for Turkey. The first call for
proposals under the CBC program will take place by the end of
this year, providing an opportunity to engage directly with
local civil society actors, including those who interact
regularly with the US-funded Black Sea Trust.


11. (U) CONCLUDING COMMENT: To some extent, the Synergy
Initiative reflects the EU tendency to "package" ostensibly
new programs in ways that introduce new acronyms without
necessarily adding additional resources. Indeed, at one
recent think tank discussion in Brussels the Synergy
Initiative was specifically criticized for adding to the
plethora of competing and overlapping neighborhood
initiatives. Another criticism, also put forward in the same
discussion, is that the Synergy Initiative is more about
"compensating" countries that aren't eligible for EU
membership rather than "transforming" them. That said, the
inclusion of a significant civil society element and the
specific reference to US experience under the Black Sea Trust
suggests that there is scope for coordination and further
conversation between EC officials and US counterparts
involved in the Black Sea region. These contacts will become
even more important as the Synergy Initiative moves from
"launch" to "implementation" and as the Black Sea Cross
Border Cooperation component makes additional funding
available to local civil society actors committed to
promoting regional cooperation around the Black Sea and
beyond.

MURRAY
.