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DE RUEHBS #0963/01 1771301
ZNR UUUUU ZZH
R 251301Z JUN 08
FM USEU BRUSSELS
TO RUEHC/SECSTATE WASHDC
INFO RUCNMEU/EU INTEREST COLLECTIVE
RUEHZL/EUROPEAN POLITICAL COLLECTIVE

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 
.