European

Integration
Index 2013
for
Eastern
Partnership
Countries
European
Integration
Index 2013
for
Eastern
Partnership
Countries
International Renaissance Foundation
in cooperation with the Open Society Foundations
and Eastern Partnership Civil Society Forum
 Table of Contents

This report Will the Eastern Partnership

was written by: 7 make a breakthrough in 2013?
Olga Kvashuk (co-editor) Many colleagues and friends contributed to dif-
Iryna Solonenko (co-editor) ferent stages of the 2013 EaP Index. We firstly are
Viorel Ursu (co-editor) very grateful to all the experts listed at the end
Martin Brusis of this publication, who worked side-by-side with 12 What is the EaP Index?
Leila Alieva us on this edition of the Index. We benefitted a
Leonid Litra great deal from insightful comments and ideas by
Dzianis Melyantsou Jacqueline Hale, Dmytro Shulga, Karina Kostrze-
Boris Navasardian wa-Dowgielewicz, Inna Pidluska, Fuad Hasanov,
Tamara Pataraia Arcadie Barbarosie, Armen Mazmanyan, Natalia 16 Index 2013 — Key Results at a Glance
Kateryna Shynkaruk Yerashevich, Roman Romanov, Vitaliy Zamnius,
Oleksandr Androshchuk Tetiana Kukharenko, Oleksandr Sushko, Georgiy
Intigam Aliyev Kasianov, Tatevik Matinyan, Veronika Aghajan-
Iryna Fedorovych yan, Hovhannes Galstyan, Mariam Matevosyan,
Vahagn Ghazaryan David Stulik, Andreas Umland, Ihor Koziy, Iryna 32 Country specific assessment
Natalia Hnydyuk Kravchuk, Maryana Kuzio. We would also like to
Anna Golubovska-Onisimova thank all those who participated in our round-
Taras Kachka table discussion in Kyiv in January 2013. Last,
Tamar Khidasheli but not least, we thank the Open Society Founda-
Veronika Movchan tions — Armenia, the Soros Foundation — Mol- 62 Sector specific assessment
Roman Nitsovych dova and the Open Society Georgia Foundation
Elena Prohnitchi for their involvement.
Natalia Sysenko
Davit Tumanyan
93 Methodology of the Index
Language editors
Jennifer Rasell
Lidia Wolanskyj
98 List of Experts
Design and layout
Denis Barbeskumpe
Will the Eastern
Partnership make a
breakthrough in 2013?

Racing back Testing democracy

and forth through elections
Weeks before the Eastern Partnership Sum- In 2012 most of the EaP countries went through
mit in Vilnius and five years since the Eastern elections that tested the very foundations of the
Partnership (EaP) was launched, the European young democracies. Armenia, Belarus, Georgia
integration trajectories of the six EaP countries and Ukraine held parliamentary elections, while
are rather uneven. Countries have responded dif- Moldova finally elected a President. The cycle con-
ferently to the same initial offer by the European tinues in 2013 with presidential elections held
Union (EU), demonstrating different levels of in Armenia and set for October in Azerbaijan
commitment and performance. Nevertheless, and Georgia. The elections revealed cracks in the
the Index 2013 shows that all six countries, with foundations of some of the countries, while oth-
some exceptions, are on a positive track towards ers managed to reinforce the roots of democracy.
European integration. Georgia, Armenia and
Azerbaijan intensified their links with the EU, Moldova ended its political instability by
while Moldova and Belarus registered no change electing a president in March 2012. The removal
and only Ukraine had less intensive relations of imminent prospect of new general elections
with the EU than last year. All six countries show allowed the coalition government to adopt a
progress in the reform process with the exception series of progressive reforms demanded by the
of Azerbaijan, which remains at the same level as EU. Moldova was the first country in the region
in the previous year. However, all countries reg- to adopt a comprehensive anti-discrimination law
ister both ups and downs in different areas. Four setting the standard for other EaP countries. The
countries — Moldova, Georgia, Armenia and government reinforced the independence of the
Belarus — improved the way they manage their Anti-corruption Center and set-up an indepen-
relations with the EU; Ukraine has not changed dent National Commission for Integrity tasked
its approach, while Azerbaijan slightly weakened with verifying and investigating the conflict of
its management mechanism. interests and assets of officials and magistrates.
However, the competing economic and power
The progress is no doubt below the high expecta- interests of governing elites generated another
tions raised at the launch of the Eastern Partner- political crisis in early 2013, which led to the
ship. Insufficient political will of governing elites dismissal of the government. The new political
still hinders important reforms. Nevertheless, crisis revealed that previous reforms could easily
the registered progress might well mean that the be undone. Immediately after the dismissal of
Eastern Partnership does work and the goals set the government major laws have been adopted
for the Vilnius Summit have brought these coun- overnight without any public consultation or
tries a few steps closer towards the EU. parliamentary debate.

7
 The parliamentary elections in Georgia led for as the UNIAN news agency and the major TV in closed institutions, the situation of alterna-
the first time to a peaceful change of government channel Inter had to opt for a more loyal coverage tive civilian service for Jehovah’s Witnesses and Testing the EU’s
through the ballot box without people taking to due to pressure from the authorities, while an concerns about media ownership amid pervasive transformative
the streets. The election results were a surprise, independent TV channel TVi was consistently de- and systemic corruption. power
following a tense and contested pre-electoral nied air space. Peaceful protests were increasingly
period marked by allegations that the ruling banned by local courts, while the number of cases For Azerbaijan 2012 was marked by heightened The developments in the EaP countries confirm
party had intimidated opposition supporters, as of harassment of demonstrators by police became international attention that came with hosting that the EU’s ability to trigger reforms crucially
well as controversies about the electoral law, in more frequent. Growing corruption and public the Eurovision song contest. The authorities depends on domestic factors. With the same offer
particular rules on party financing. The Saakash- procurement lacking transparency is part of the responded to criticisms of human rights abuses, on the part of the EU some countries have dem-
vili government made a number of concessions in Ukrainian reality. At the same time a progressive including detentions, torture and property rights onstrated progress, while others have remained
the run-up to the elections, including in response NGO law was adopted, a new Criminal Proce- violations (the latter directly related to construc- mostly immune to the EU’s leverage. Despite
to the successful civil society campaign ‘This dural Code was passed, and the national preven- tion for the Eurovision song contest) by cracking some progress noted above, the high expecta-
Affects You Too’ that argued for equal access for tive mechanism against torture was established. down on dissent. Although the remaining indi- tions about a positive response in the partner
all partisan media to cable TV. Images of abuse In December 2012 the EU outlined a number of viduals detained during the April 2011 protests countries to the EU’s ambitious offer of Associa-
in a Tbilisi jail that surfaced during the electoral conditions for Ukraine to fulfil in order to sign inspired by the Arab Spring were freed in June tion and Deep and Comprehensive Free Trade
period likely boosted the vote for the opposi- the Association Agreement at the Vilnius Summit. 2012, there followed further intimidation and Agreement (DCFTA), as well as future visa-free
tion party Georgian Dream, as citizens saw this Yet, Ukrainian authorities have demonstrated the arrests of journalists, bloggers and political travel, did not materialise.
as proof of the continued abuse of power by the little political will to implement the required opposition figures. The Council of Europe rappor-
executive and the failure of judicial reform. Since reforms. teur on political prisoners continued to be denied Firstly, in the countries where survival of the
the election, President Saakashvili and Prime access to the country. With presidential elections regime is at stake, the EU’s offer did not become
Minister Ivanishvili have entered into an uncom- Parliamentary elections in 2012 and presidential looming in October 2013 — during which the an attractive incentive. Reforms that would
fortable ‘cohabitation’. However, in late March elections in 2013 in Armenia were — with the incumbent Ilham Aliyev will run for a third con- undermine the foundations of the regime — such
the Georgian parliament unanimously passed a exception of the shooting of a minor presidential secutive term — the authorities continue to use a as the release of political prisoners in Azerbaijan,
key constitutional vote to limit presidential pow- candidate – largely well-administered without the de facto ban on freedom of assembly to disperse Belarus or Ukraine, a level playing field during
ers to dismiss the parliament, paving the way for violence and fatalities that set Armenia back in rallies in Baku and arbitrarily detain demonstra- elections, media freedom and fighting corruption
a smoother transition. The new government has March 2008. However, the presidential elections tors. In a further attempt to restrict freedom of — have little chance to be implemented. Only in
also proceeded with reforms to the labour code, were hardly contested as major contenders did expression, the parliament extended the offence countries where political will for reforms is in
demanded by the EU, as well as tackling reforms not run and allegations of fraud were made. The of criminal defamation and insult in the media to place — Moldova and to some extent Georgia
to the justice sector. Not all new measures have OSCE/ODIHR assessed that although candidates cover online content and lengthened the term of and Armenia — was progress achieved.
been without controversy such as reconstituting were able to campaign freely and had equal access administrative detention. Azerbaijan continues
the High Council of Justice and a parliamentary to the media, there was ‘undue interference in to be selective in its relations with the EU and has Secondly, in several countries political opposition
decision in December 2012 to release designated the process, mainly by proxies representing the made little progress on commitments undertaken is either weak or lacks a clear alternative agenda.
‘political prisoners’ detained under the former incumbent’ and observed that although attempts in its 2006 Action Plan. Therefore, even if protest potential is high, there
administration. had been made to technically improve the voters’ are no political forces to channel dissatisfaction
list, public trust in the list and the process in The elections in Belarus did not permit any op- into a constructive campaign.
Democracy in Ukraine has continued to deterio- general remained low. With the Republic Party portunity for alternative candidates to enter the
rate during the past year. Ukraine did not pass incumbent Serge Sargsyan declared the victor parliament, despite some minor improvement Finally, the EU’s ability to be a role model de-
the test posed by the general elections that were of the presidential elections, leading opposition in the electoral process. Three political prisoners pends on its image and the level of trust it enjoys
largely manipulated not only during the cam- contender Raffi Hovannisyan addressed protest were released last year, while nine still remain in the partner countries. According to the EU 1
Latest Barometer pub-
paign, but also on the election day and during rallies attended by thousands of supporters at in detention. Freedom of association, assembly Neighbourhood Barometer1 only in Moldova
lished in March 2013
tabulation. Two major political opposition lead- Liberty Square in March and April 2013. How- and media are still highly restricted. In 2012 the and Georgia has the majority of the population a www.euneighbourhood.eu
ers, Yulia Tymoshenko and Yuri Lutsenko, widely ever, the absence of an opposition programme country avoided a deep economic crisis only due positive image of the EU. Belarusians and Azer-
seen as victims of selective justice, remained in led to a lack of steam and the electoral result was to Russia’s subsidising policy: its inflation was baijanis trust the EU the least, 36% and 39% ac-
prison. While Yuri Lutsenko was pardoned by largely seen as an expression of dissatisfaction brought down from more than 100% to 22% by cordingly, compared to an overwhelming majority
President Yanukovych in April 2013, new cases with the incumbent. In the meantime, the coun- the end of the year. who trust the EU in the other four countries. The
against Tymoshenko continue to be opened. try continues to struggle with emigration and majority of Armenians, Georgians, Moldovans
Media freedom experienced further limitations major concerns remain regarding human rights

8 9
 and Ukrainians also believe that the EU is an In 2012 the countries that had made the most AA will create serious constraints for unwilling
important partner for their country, while only progress in the area of deep and sustainable reformers. It will become more difficult to reject
37% of Azerbaijanis and 39% of Belarusians democracy received additional funding from the reforms that are both very specific and legally
share this view. EU development support in the EU. Allocations to Moldova and Georgia were binding. Moreover, the AA will become a tool
EaP countries is highly acknowledged by Arme- increased by one third, 28 million euro and 22 and provide leverage to those actors in the EaP
nians, Georgians and Moldovans. In contrast only million euro respectively, while Armenia’s al- countries who are interested in reform. It has the
a minority of Belarusians, Azeris and Ukrainians location was increased by 25% (15 million euro). potential to increase their power in the long run.
appreciate the EU’s efforts. The EU assistance to the Ukrainian government As the struggle between unwilling reformers and
remained relatively low for the size of the country. reform-minded actors will only intensify a strong
Nevertheless, there is space for optimism. The Moreover, a substantial amount of funding was external incentive beyond the AA will be needed
expectation that the EU will play a greater role in frozen and partially withdrawn due to Ukraine’s to tip the balance in favour of the latter and give
the region is high across the EaP countries. EU inability to meet sector-specific conditions and divided societies a sense of direction.
support for economic development, trade, but improve public funding management. While EU
also human rights and democracy is very much funding to the Belarusian and Azeri governments When the time comes the EU member states
welcomed. Civil society in all six countries sees was insignificant, funding to civil society in those will have to reflect and agree on whether to offer
the EU as its partner and uses the EU as a refer- countries increased. Starting from 2014 the EU “the most powerful foreign policy instrument of
ence in promoting the very same reforms that the intends to make its funding to partner countries the European Union and the expression of its
EU put on the agenda. even more contingent on progress in the area of ultimate transformative power - the perspective
democracy and human rights. for a country to accede, as provided by Article
The EU’s ‘more for more’ approach is increasingly 49 of the Treaty on EU if it shares the principles
being applied to the EaP countries. Negotiations of freedom, democracy and respect for the rule
on Association Agreements (AA) including of law”3. In line with its approach of greater 3
DCFTA with the three best performing countries Beyond the point of differentiation the EU should be able to look at Štefan Füle,

— Moldova, Georgia and Armenia — were intensi- no-return each individual country and offer a ‘merit-based
European Commissioner
for Enlargement and
fied and concluded in summer 2013. At the same membership perspective’ rather than ‘geography Neighbourhood Policy,
Presentation of the
time the signature of the Association Agreement The conclusion of Association Agreements with based perspective’ for the entire region, taking European Neighbour-
with Ukraine was further delayed as a result of DCFTA provisions with the four leading countries into consideration the ambitions of each country, hood Policy package in
the European Parlia-
poor conduct during the elections and failures – Ukraine, Moldova, Georgia and Armenia - will their capacity to adjust to the EU and proven
ment, 20 March 2013
of the justice system. The EU is not able to start mark the point of no-return on their European track record of reforms. It should be possible to www.europa.eu
negotiation of DCFTA with Azerbaijan until the integration trajectory. The countries will be reach a positive decision on this EU’s offer before
country’s accession to WTO. Cooperation with engaged in substantial regulatory alignment with the next EaP Summit in 2015.
Belarusian authorities was primarily limited to the EU for many years after the Vilnius Summit.
the multilateral track of the Eastern Partnership. Governments who continue to flirt with the idea In the meantime the EaP reforming governments
The EU kept in place restrictive measures against of joining the Russia-led Customs Union and the must do a better job at helping their advocates
243 Belarusian officials and 32 companies. future Eurasian Union will have to reject Rus- inside the EU to argue for possible membership
sia’s offer. The EU made it clear that DCFTA with perspective by providing frequent, consistent
One of the strongest incentives for EaP countries the EU is not compatible with participation in examples of being ready for accession discussions.
to reform is the perspective of visa-free travel for custom arrangements with third parties. The Index will continue tracking the record and
citizens to the EU. Moldova was the first country the trajectory of each country in the following
to complete the requirements prescribed by the Concluding the AAs will not automatically lead to years.
EU and was moved to the second phase of the speedy Europeanisation of the EaP countries. The
visa liberalisation process. Ukraine, who started AA will not produce political will where it is not
negotiating visa liberalisation with the EU earlier already in place. Indeed, the implementation of
2 than Moldova, has not yet been able to meet the AAs might produce active opposition to the EU as
For regular updates see
the Eastern Partnership
EU’s requirements. Georgia, on the other hand, short-term costs will have to be paid before the
Visa Liberalisation Index received a Visa Liberalisation Action Plan only in long-term benefits kick in. At the same time, the
www.monitoring.visa-free- 2013, but is catching up quickly.2
europe.eu

10 11
 What is the EaP Index?
We subdivide these three dimensions into the to develop detailed catalogues of items through
various sections, categories and subcategories consultations with experts from civil society,
shown below in Table 1. All categories and subcat- public authorities and EU institutions. This was
egories are further broken down into items that designed to obtain a more differentiated, first-
can be found in full on the Index’ website.5 These hand comparative assessment that would make
items consist of questions for experts and quanti- it possible to pinpoint the strengths and weak-
tative indicators from public data sources. nesses of each country. 5
www.eap-index.eu

All countries in Eastern Europe declared the each country where more progress is needed The detailed methodology of the Index is ex- Management looks at institutional structures and
intention to align with European values and and serves as a reference point for civil society plained in the Annex. European integration coordination and manage-
standards and some of them pursue the ambition organisations in the EaP region that advocate ment on the ground. While the EU has no specific
of joining the European Union. The countries em- policy change. How we structure the evaluation of Linkage and requirements or blueprints as to how European
barked on a long road of transformation assisted Approximation reflects the multi-level and multi- integration policies should be managed, we
by the EU’s Eastern Partnership Initiative. The The Index interprets ‘progress in European sectoral nature of European integration. It also believe that this dimension reflects the level of
idea of comparing countries’ speed and trajecto- integration’ as the combination of two separate reflects the structure of bilateral Action Plans/ commitment to European integration and the ca-
ries emerged in 2010, soon after the Eastern Part- yet interdependent processes: increased linkages Association Agendas between the EU and EaP pacity to deal with the growing EU-related agenda
nership was launched. The first assembly of the between each of the EaP countries and the Euro- countries and the EU’s annual Progress Reports. in each EaP country.
EaP Civil Society Forum demonstrated that civil pean Union and greater approximation between Since existing surveys have not covered system-
society in the region is strong, but it lacks collec- those countries’ institutions, legislation and prac- atically several items pertinent to Linkage and The 2013 Index is based on a more elaborate
tive effort to stimulate reforms on the ground. tices and those of the EU. While the linkage pro- Approximation, we asked various local experts to questionnaire than the previous year in order
cess reflects the growth of political, economic and provide their assessment and information. to take better into account the actual imple-
The European Integration Index for Eastern Part- social interdependencies between EaP countries mentation of reforms and not just the existence
nership Countries (EaP Index) is a tool of civil and the EU, the approximation process shows the Linkage looks at depth and intensity of contacts of legislation. In order to ensure crossannual
society monitoring and serves as a speedometer degree to which each EaP country adopts institu- and cooperation between the EU and each EaP comparison, the 2012 Index was updated to
4 of European integration for EaP countries.4 The tions and policies typical of EU member states country, in particular political dialogue, trade match the new questionnaire. As a result, the
The Index does not
Index is designed to keep countries on the right and required of EaP countries by the EU. flows, cooperation in various sectors, people current Index shows not only the state of things
cover the situation in the
break-away territories of track and to provide warnings when countries de- mobility and the level of EU assistance to each in 2012 and early 2013, but also how the situa-
Transnistria, Nagorno- part from the expected trajectory or progress is at The Index assumes that increased linkages and country. tion changed over the year. This allows us to trace
Karabakh, Southern
Ossetia and Abkhazia. an unacceptable pace. Three aspects of the Index greater approximation mutually reinforce each progress or the lack thereof and make conclu-
stand out. First, it sets out a detailed standard other. However, this virtuous circle is not fully Approximation seeks to assess how closely institu- sions about reform efforts and political will in
for the assessment of ‘deep and sustainable de- self-enforcing. Its dynamic depends on facilitative tions and policies in EaP countries resemble each of the EaP countries.
mocracy’. Second, the Index provides a nuanced political decisions and structures. Such a concept those typical of EU member states. The sections
and transparent cross-country and cross-sector of European integration has led us to identify on deep and sustainable democracy and market The Index has been developed by a group of over
picture and a comparative view. The six countries three dimensions for evaluation: economy and DCFTA not only constitute core 50 civil society experts from EaP countries and
are assessed across the same list of questions and conditions that the EU imposes on countries the EU. Many more have contributed comments
indicators (823 items). Third, the Index attempts 1. Linkage: growing political, economic and interested in closer relations with the Union, but at various stages of the project. This Index is
to bolster existing EU efforts, such as the annual social ties between each of the six EaP coun- they are also uncontested political aims and le- produced by the International Renaissance
progress report, by offering independent analy- tries and the EU; gitimising general principles in all EaP countries. Foundation (IRF) and the Open Society European
sis. The Index appears annually and reinforces 2. Approximation: legislation, practices and These sections partly use ratings and composite Policy Institute (OSEPI) in cooperation with the
the impact of EU assessments of reforms in EaP institutions in the EaP countries converging indicators produced by international agencies Open Society Foundations in Armenia, Georgia
countries. Moreover, the Index results inform towards EU standards and in line with EU and other non-governmental organisations and Moldova, and the Eastern Partnership Civil
the EU about its ‘more for more’ approach. It requirements; (NGOs). Society Forum (CSF). The project is funded by
shows where each EaP country stands in terms 3. Management: evolving management struc- the IRF’s European Programme and the EastEast:
of reforms and its relationship with the EU. As tures and policies in the EaP countries that For certain areas that were not well covered by Partnership Beyond Borders Programme of the
such, the Index points to those reform areas in aim at further European integration. existing cross-national comparisons, we decided Open Society Foundations (OSF).

12 13
Table 1. Table 1.

Linkage Approximation Management

dimension dimension dimension

1. POLITICAL DIALOGUE 1. DEEP AND SUSTAINABLE DEMOCRACY 2.3 DCFTA 1. INSTITUTIONAL ARRANGEMENTS
1.1 Bilateral institutions 1.1 Elections (national level) 2.3.1 Trade defence instruments FOR EUROPEAN INTEGRATION
1.2 Multilateral institutions and Eastern 1.1.1 Fair electoral campaign and technical barriers to trade (coordination and implementation)
Partnership 1.1.2 Legal framework and its 2.3.2 Sanitary and phytosanitary measures
1.3 CFSP/CSDP cooperation implementation 2.3.3 Customs and trade facilitation 2. LEGAL APPROXIMATION MECHANISM
1.1.3 Organisation of elections 2.3.4 Services
2. TRADE AND ECONOMIC INTEGRATION 1.1.4 Electoral competitiveness 2.3.5 Capital 3. MANAGEMENT OF EU ASSISTANCE
2.1 Trade flows: goods 1.2 Media freedom, association and assembly 2.3.6 Intellectual property rights
2.2 Trade barriers: goods rights 2.3.7 Geographical indications 4. TRAINING IN THE FIELD OF EUROPEAN
2.3 Services 1.2.1 Media freedom 2.3.8 Competition INTEGRATION
2.4 FDI 1.2.2 Association and assembly rights 2.3.9 State aid
2.5 Trade defence instruments 1.3 Human rights 5. AWARENESS RAISING ABOUT EUROPEAN
1.3.1 Protection of civil liberties 3. SECTORAL APPROXIMATION INTEGRATION
3. SECTORAL COOPERATION 1.3.2 Equal opportunities and 3.1 Freedom, security and justice
3.1 Freedom, security and justice non-discrimination 3.1.1 Visa dialogue 6. PARTICIPATION OF CIVIL SOCIETY
3.1.1 Migration and asylum 1.4 Independent judiciary 3.1.2 Migration and asylum
3.1.2 Border management 1.4.1 Appointment, promotion 3.1.3 Border management
3.1.3 Security and combatting organised and dismissal 3.1.4 Security and combatting
crime 1.4.2 Institutional independence organised crime
3.1.4 Judicial cooperation: criminal and 1.4.3 Judicial powers 3.2 Energy: legislation convergence and
civil matters 1.4.4 Accountability and transparency energy policy
3.2 Energy: trade and integration 1.5 Quality of public administration 3.2.1 Energy community
3.3 Transport: integration with Trans-European 1.5.1 Policy formulation and coordination 3.2.2 EU “Energy packages”implementation
Networks 1.5.2 Impartial and professional 3.2.3 Institutional framework of energy
civil service market
4. PEOPLE-TO-PEOPLE 1.6 Fighting corruption 3.3.4 Energy efficiency
4.1 Mobility, including academic and students 1.6.1 Control of corruption 3.3 Transport: regulatory policy
mobility 1.6.2 Internal and external auditing 3.4 Environment and sustainable development
4.2 Participation in EU programmes and agencies 1.6.3 Public procurement 3.4.1 Environmental policy
1.7 Accountability 3.4.2 Sustainable development policy
5. ASSISTANCE 1.7.1 Executive accountability 3.4.3 Resources efficiency
5.1 Overall EU Development Aid to legislature 3.4.4 Climate change
5.2 European Neighbourhood and Partnership 1.7.2 Transparent budgeting 3.4.5 Pressure to/ state of environment
Instrument 1.7.3 Democratic control over security 3.4.6 Sustainable development and trade
5.2.1 National and law enforcement institutions 3.5 Policies on education, culture, youth and
5.2.2 ENPI East regional/ Interregional information society
5.3 Thematic instruments and programmes and 2. MARKET ECONOMY and DCFTA 3.5.1 Education
special technical assistance 2.1 Business climate 3.5.2 Other policy areas
5.4 European financial institutions 2.2 Sector transition

14 15
 Index 2013 bar Belarus. Its level of market economy and
meeting DCFTA requirements is also behind that
from the EU than Moldova, Georgia and Armenia.
This has to do with objective factors — as a large

—Key Results of Armenia and Georgia.

At the same time Moldova has the most devel-

country it receives less funding per capita com-
pared to small countries. Notwithstanding, this is
also connected to the poor progress in domestic

at a Glance oped people-to-people links with the EU and is

the top recipient of EU assistance. It also shows
the best results in all aspects of deep and sustain-
reforms. For instance, Ukraine lags behind at
least two or three other countries of the region in
many aspects of deep and sustainable democracy
able democracy with the exception of fighting and sectoral cooperation. In its level of market
corruption where it shares the first position with economy and meeting DCFTA requirements only
Georgia. Azerbaijan and Belarus are behind. We observe a
similar situation in Management of European In-
The Index 2013 shows the positive advancement slight decline in Linkage and a slight improve- When it comes to Management of European Inte- tegration. The exception is that Ukraine’s system
of all six EaP countries towards the European ment in Approximation, staying on the same level gration, Moldova needs to improve training and of legal approximation is the best in the region
Union, with a few exceptions. The different start- in Management. awareness raising in the field of European inte- and its level of participation of civil society is also
ing points, ambitions and the speed of reforms gration both for civil servants and at university. relatively high.
determine the variation in current positions. Armenia made good progress towards the EU
last year. Despite being fourth in Linkage, it As compared to Index 2012, no major shifts There are slight changes, both positive and nega-
Moldova is the top reformer in the region and is comes third in Approximation. The country im- occurred. Exceptions to this include a decline in tive, across most aspects of the Index for Ukraine.
the closest to meeting EU standards. Although its proved its scores in all three dimensions, espe- people-to-people links and increased assistance. A clear improvement can be noted in Approxima-
Linkage score remains the same as last year, the cially in Management, where it reached almost the tion in all sectors. Ukraine also improved its busi-
country improved in Approximation and Manage- same level as Ukraine. Georgia, across all aspects of deep and sustain- ness climate. Ukraine’s overall democracy score
ment. Moldova continues to occupy the leading able democracy, is showing particularly good did not change since although problems with the
position in all three dimensions and holds the Azerbaijan comes fifth in all dimensions of the results in fighting corruption and fostering an 2012 parliamentary elections led to a decline in
highest mark for deep and sustainable democracy. Index. Although the country improved its Linkage independent judiciary. Moreover, it has the best this area, there are improvements when it comes
with the EU, it shows no progress in Approxima- business climate in the region and comes closest to human rights. The score for Management of
Georgia is the second best performer. The tion and even a slight decline in Management. to meeting DCFTA requirements. Its policies of European Integration did not change at all.
country improved its scores in all three dimen- awareness raising in the field of European inte-
sions. Although it comes only third in Linkage Belarus remains the furthest from the EU. The gration and participation of civil society in shap- Armenia, despite occupying fourth position in
after Ukraine, it still comes second in Approxima- country has the lowest marks in all three dimen- ing EU-related policies are also fairly developed. Linkage, shows relatively high results in participa-
tion, and is almost on the same level as Moldova sions. Nevertheless, although it shows no change tion in EU programmes and agencies by making
in Management. The country improved its scores in Linkage, Belarus improved its scores in Approxi- At the same time its trade and economic integra- good use of opportunities offered by the EU.
in Linkage and Approximation and maintained the mation and Management. tion with the EU is relatively weak – on the same Nevertheless, its links with the EU in energy and
previous mark in Management. Georgia made the level as Armenia with only Belarus behind. It also transport sectors and mobility are rather low.
biggest advancement last year among the EaP needs to improve mobility for people and its poli-
countries in deep and sustainable democracy. cies on education, culture, youth and information Armenia improved its relative position in Ap-
Ups and downs society. proximation: although last year it was on the
Ukraine, in overall third position, enjoys the same level as Ukraine, it has caught up and leaves
highest intensity of political dialogue, trade and Although Moldova is a clear frontrunner in the Georgia improved its scores compared to last year Ukraine slightly behind in the current Index. Its
economic integration and sectoral cooperation Index, it slightly lags behind Ukraine when it in all aspects of the Index apart from trade and performance in deep and sustainable democracy
with the EU. However, the country is not able to comes to political dialogue, trade and economic economic integration and people-to-people links is not particularly high, somewhat below Ukraine,
take full advantage of its geographical proxim- integration and cooperation in different sectors with the EU. yet its quality of public administration is among
ity and to translate its privileged relations with with the EU. Although its approximation in all the best in the region. Armenia’s approximation
the EU into greater similarities to the EU system. sectors is relatively high, its transport regulatory Although Ukraine enjoys the highest level of in energy, transport and its policies on education,
Despite being second in Linkage, Ukraine comes policy and policies on education, culture, youth political dialogue with the EU and has the most culture, youth and information society are the
only forth in Approximation and third in Manage- and information society are far from meeting EU advanced trade and economic integration and best in the region too.
ment. Compared to last year, Ukraine shows a requirements. In this it lags behind all countries sectoral cooperation, it receives far less assistance

16 17
 Moldova Georgia Ukraine Armenia Azerbaijan Belarus
Linkage

Linkage
0.70 0.57 0.65 0.49 0.41 0.31
Approximation

Approximation
0.67 0.63 0.58 0.59 0.42 0.33
Management

Management
0.59 0.58 0.52 0.51 0.33 0.24

18 19
 Moldova Georgia Ukraine Armenia Azerbaijan Belarus
Linkage

Linkage
0.70 0.57 0.65 0.49 0.41 0.31

POL I T IC A L DI A L O GUE POL I T IC A L DI A L O GUE

0.79 0.69 0.88 0.69 0.62 0.28

T R A DE A ND E C ONOMIC IN T E G R AT ION T R A DE A ND E C ONOMIC IN T E G R AT ION

0.71 0.54 0.72 0.54 0.57 0.38

SE CTOR A L C O OPE R AT ION SE CTOR A L C O OPE R AT ION

0.61 0.51 0.66 0.23 0.36 0.32

PEOPL E-TO-PEOPL E PEOPL E-TO-PEOPL E

0.71 0.47 0.54 0.46 0.28 0.34

A S SI S TA NC E A S SI S TA NC E

0.68 0.65 0.46 0.52 0.25 0.21

20 21
 Moldova Georgia Ukraine Armenia Azerbaijan Belarus
Approximation

Approximation
0.67 0.63 0.58 0.59 0.42 0.33

DE EP A ND S U S TA INABL E DE MO CR AC Y DE EP A ND S U S TA INABL E DE MO CR AC Y

0.75 0.64 0.60 0.59 0.31 0.27

M A R K E T E C ONOM Y and DC F TA M A R K E T E C ONOM Y and DC F TA

0.61 0.66 0.54 0.57 0.43 0.38

SE CTOR A L A PPROXIM AT ION SE CTOR A L A PPROXIM AT ION

0.65 0.59 0.60 0.62 0.53 0.35

22 23
 Moldova Georgia Ukraine Armenia Azerbaijan Belarus
Management

Management
0.59 0.58 0.52 0.51 0.33 0.24

IN S T I TU T IONA L A R R A NG E ME N T S F OR EUROPE A N IN T E G R AT ION IN S T I TU T IONA L A R R A NG E ME N T S F OR EUROPE A N IN T E G R AT ION

(coordination and implementation) (coordination and implementation)

0.73 0.63 0.43 0.57 0.23 0.03

L E G A L A PPROXIM AT ION ME C H A NI SM L E G A L A PPROXIM AT ION ME C H A NI SM

0.59 0.59 0.66 0.47 0.41 0.03

M A NAG E ME N T OF EU A S SI S TA NC E M A NAG E ME N T OF EU A S SI S TA NC E

0.63 0.56 0.44 0.50 0.44 0.81

T R A INING IN T HE FIE LD OF EUROPE A N IN T E G R AT ION T R A INING IN T HE FIE LD OF EUROPE A N IN T E G R AT ION

0.29 0.36 0.50 0.57 0.29 0.00

AWA R E NE S S R A I SING ON EUROPE A N IN T E G R AT ION AWA R E NE S S R A I SING ON EUROPE A N IN T E G R AT ION

0.36 0.43 0.36 0.43 0.21 0.14

PA RT IC IPAT ION OF C I VIL S O C IE T Y PA RT IC IPAT ION OF C I VIL S O C IE T Y

0.92 0.92 0.75 0.50 0.42 0.42

24 25
 Armenia also has the best system of training and and sustainable development. Although Belarus respectively), but at much lower levels, suggest- Economy. Ukraine, despite enjoying the most
policy of awareness raising in the field of Europe- scores the worst in deep and sustainable democ- ing that a mutually reinforcing dynamic has not intensive trade and economic integration with
an integration (in the latter aspect together with racy, in some aspects the country is doing better yet set in. the EU, shows poor results, compared to other
Georgia), while in other aspects of Management than Azerbaijan. countries, in its market economy and DCFTA per-
there is room for improvement. A second pattern can be seen in Georgia and formance. At the same time Georgia and Armenia,
Belarus intensified its trade and economic Armenia where the Approximation scores clearly who are the least advantaged in their trade and
Armenia made slight progress in all aspects of integration with the EU over the past year, but exceed the Linkage scores: A63 vs. L57 for Geor- economic integration with the EU, are the best
the Index with the exception of people-to-people shows decline in transport integration and the gia and A59 vs. L49 for Armenia. These countries performers in market economy and DCFTA.
links where it shows decline. Its advance is level of EU assistance it receives. It improved its seem to be disadvantaged in Linkage. However,
particularly evident in sectoral cooperation and performance in some aspects of democracy and given their relatively high scores in Approximation, The sector Freedom, Security and Justice
in Management of European integration, almost approximation in different sectors. Improved one can conclude that these countries are making shows no major discrepancies. The ranking of the
reaching the level of Ukraine. performance in management of EU assistance good efforts in domestic reforms despite fewer four frontrunners is the same in both dimensions.
and participation of civil society account for the links with the EU. Both countries lag behind Belarus and Azerbaijan change places: the former
Azerbaijan, although the second worst perform- overall improvement in Management of European Ukraine in Linkage, but show better results than shows better results in Linkage, but weaker re-
er in all dimensions, enjoys a relatively high level Integration. Ukraine in Approximation. Georgia is ahead of sults in Approximation.
of trade and economic integration with the EU Armenia in both dimensions. The gap between
and cooperation in the field of energy. Its Approxi- the Linkage and Approximation scores for both In the Energy sector Ukraine, Azerbaijan and
mation in transport and its policies on education, countries has slightly increased compared to last Belarus are not making the best use of trade and
culture, youth and information society are also Linkage vs year — both countries improved their scores in cooperation with the EU in order to align with
fairly advanced. At the same time its cooperation Approximation both dimensions, but more so in Approximation EU standards. Their Approximation scores are far
in freedom, security and justice and people-to- than in Linkage. Increased Approximation scores below Linkage. Armenia also shows discrepancy,
people links with the EU and meeting environ- The Index assumes that European integration have to do with improved democracy perfor- but the relation between dimensions is reversed
mental standards are the worst in the region. results from the interaction of increased linkages mance, particularly elections, which took place — it is the least advantaged country in Linkage
and greater approximation: closer ties with the in both countries in 2012, but also improved in this area, but is the second best performer
In deep and sustainable democracy Azerbaijan EU, for example through political and technical approximation in all sectors. after Moldova when it comes to Approximation.
lags behind the other six countries in elections, cooperation, are likely to support the transfer Moldova seems to make good use of its developed
fighting corruption, accountability and demo- and implementation of EU norms, and a more Ukraine exemplifies a third pattern since its links with the EU and translates these into better
cratic control over security and law enforcement EU-compatible regulatory environment in an EaP Linkage score is higher than its Approximation approximation. Georgia would need to make bet-
institutions. The same concerns management of country is likely to increase investment from the score. Like Georgia and Armenia, Ukraine shows ter use of Linkage to catch up in Approximation.
EU assistance and participation of civil society (in EU and bilateral trade. If this dynamic works, one a discrepancy between both dimensions, but
the latter aspect together with Belarus). would expect higher Linkage scores to engender its relation is reversed. The scores indicate that The Transport result shows that all countries,
higher Approximation scores and vice versa. the country is not able to take full advantage of bar Belarus, are making good efforts to under-
Azerbaijan slightly improved its links with the EU, its geographical proximity and to translate its take domestic reforms. The biggest discrepancy
especially the level of assistance it received and The results of the Index suggest three different privileged relations with the EU into greater simi- appears to be in the case of Armenia and Azerbai-
people-to-people links increased. Despite minor patterns. The aggregate scores for Moldova, Azer- larities to the EU system. However, the gap has jan – both are the frontrunners in Approximation,
improvement in market economy, DCFTA and baijan and Belarus tend to confirm the assump- narrowed as compared to last year due to slight but rather disadvantaged in Linkage. Belarus’
sectoral approximation, its deep and sustainable tion of interdependent EU linkages and institu- decline in Linkage and slight improvement in transport regulatory policy is furthest away from
democracy performance slightly deteriorated. tional similarities. Approximation — L65 vs. A58. The latter has to do meeting EU standards, although Belarus has
There is also marginal decline in civil society par- with the improved business climate and approxi- more advanced transport cooperation with the
ticipation leading to an overall decline in Manage- Moldova achieved similar overall scores for both mation in other sectors, as well as the improved EU than Azerbaijan and Georgia.
ment of European Integration. dimensions and is the clear leader among the human rights situation, although due to manipu-
Eastern partners. Its high level of Approximation lated elections in 2012 Ukraine’s elections’ score A relatively high level of People-to-People
Although overall Belarus is in last position, the corresponds to its high Linkage. As Moldova im- declined. contacts seems to translate into more developed
country scores better than other countries in proved its performance in 2012 in Approximation, policies on education, culture, youth and infor-
some aspects of the Index. For instance, it has there is now almost no gap between the scores These correlations become even more evident mation society in the case of Ukraine, Georgia
the highest level of trade in services with the EU in the two dimensions (L70 vs. A67). Azerbaijan when one compares sector specific Linkage and and, even more so, in Armenia. Less developed
and the best system of managing EU assistance. and Belarus also display similar aggregate scores Approximation. contacts between Belarus and the EU equally
The country has high standards on environment in both dimensions (L41 vs. A42 and L31 vs. A33 translate into lesser approximation in this area.

26 27
 Linkage vs Approximation 2012–2013 shift

Moldova and Azerbaijan show large discrepan-

cies. Although Moldova enjoys the highest level
of people-to-people contacts with the EU, it is
the second worst performer when it comes to
domestic policies. Azerbaijan, having the lowest 0.7
level of people-to-people contacts with the EU, is MDA 13
the second best performer after Armenia in ap-
proximation of domestic policies.
MDA 12
GEO 13
The relationship between Assistance in Link-
age and Deep and Sustainable Democracy
0.6
in Approximation also shows interesting results. ARM 13
According to the EU’s ‘more for more’ approach, GEO 12 UKR 13

countries that demonstrate a relatively good qual- ARM 12

ity of democracy and continue making progress
receive additional rewards from the EU. Moldova, UKR 12

Approximation
Georgia and Armenia enjoy the largest assistance
from the EU. Since these countries improved 0.5
their democracy performance last year, the
level of EU assistance also increased. Although
Ukraine scores slightly better than Armenia in
terms of democracy, the country receives less EU AZE 13
assistance and this level dropped compared to the
previous year. One of the reasons is that Ukraine AZE 12
has not registered improvement in deep and 0.4
sustainable democracy in the last two years. Azer-
baijan and Belarus score low both in democracy
performance and the level of EU assistance.

BLR 13

BLR 12
0.3
0.2 0.3 0.4 0.5 0.6 0.7 0.8

Linkage

28 29
Linkage vs Approximation

Linkage vs Approximation
Moldova Georgia Ukraine Armenia Azerbaijan Belarus

0.70 0.57 0.65 0.49 0.41 0.31

0.42 0.33
0.67 0.63 0.58 0.59

0.59 0.58 0.52 0.51 0.33 0.24

E C ONOM Y E C ONOM Y

0.71 / 0.61 0.54 / 0.66 0.72 / 0.54 0.54 / 0.57 0.57 / 0.43 0.38 / 0.38

F R E E D OM, SE CUR I T Y A ND JU S T IC E F R E E D OM, SE CUR I T Y A ND JU S T IC E

0.94 / 0.99 0.59 / 0.82 0.82 / 0.83 0.35 / 0.58 0.17 / 0.56 0.24 / 0.38

E NE RGY E NE RGY

0.51 / 0.59 0.59 / 0.47 0.68 / 0.41 0.18 / 0.49 0.65 / 0.24 0.40 / 0.19

T R A N SPORT T R A N SPORT

0.39 / 0.53 0.36 / 0.58 0.48 / 0.56 0.18 / 0.67 0.26 / 0.65 0.31 / 0.15

PEOPL E-TO-PEOPL E PEOPL E-TO-PEOPL E

0.71 / 0.48 0.47 / 0.51 0.54 / 0.64 0.46 / 0.72 0.28 / 0.67 0.34 / 0.39

A S SI S TA NC E / DE EP A ND S U S TA INABL E DE MO CR AC Y A S SI S TA NC E / DE EP A ND S U S TA INABL E DE MO CR AC Y

0.68 / 0.75 0.65 / 0.64 0.46 / 0.60 0.52 / 0.59 0.25 / 0.31 0.21 / 0.27

30 31
 Country specific the necessary laws by mid-2012—much earlier
than Ukraine. As a result the EU advanced Moldo-
ination and anti-corruption legislation. On the
other, decision-making has become less trans-

assessment va to the second phase of VLAP. Soon the country

will have to prove that it is actually implementing
the laws it has adopted. As part of its VLAP com-
parent. Important laws changing the electoral
system, increasing the electoral threshold and
the appointment and dismissal of the Prosecu-
mitments, Moldova was the first country in the tor General were adopted overnight without any
Eastern Partnership to adopt a comprehensive consultations with civil society or input from the
anti-discrimination law that also includes explicit Venice Commission and without much debate in
protection for sexual minorities. Overall, Mol- the legislature. Many critical state institutions,
dova is leading both in Linkage and Approximation including the Constitutional Court, the Tax In-
in the areas of freedom, security and justice and spectorate, the National Anti-Corruption Centre,
represents a model for the rest of the countries. the Ministry of Internal Affairs and the Prosecu-
Moldova Although the governing elite continued its tor’s Office, are believed to act on political orders
positive rhetoric about the EU and continued to Considerable progress was also achieved in the rather than as independent institutions. Several
Moldova-EU relations reached a new high point call for reforms, in many cases its actions were negotiation of a new agreement with the EU. The top officials are currently under criminal investi-
in 2012 with many and substantive processes not consistent with the statements. There is a text of the Association Agreement was finalised gation for suspected corruption, abuse of office
on the bilateral agenda and several key break- growing gap between the ruling parties and the and DCFTA negotiations were concluded in June and influence-peddling.
throughs. However, 2012 and the beginning of opposition regarding future relations with the EU. 2013. For its achievements in implementing
2013 also challenged the country’s poster child On one hand, the Government advanced the idea reforms last year, Moldova received a ‘more for A considerable part of the domestic press ac-
reputation because of a growing political crisis, that Moldova should behave as a EU candidate more’ reward in the shape of EUR 28 million from curately reflects developments in the country
lack of trust within the governing coalition and country and tune into positive signals of support the EU on top of its annual EUR 94 million grant. and provides varied information about political
the adoption of some worrying laws. Moreover, coming from Brussels. On the other, the main This makes Moldova one of the biggest per capita life. Yet, a serious ‘berlusconisation’ of the media
a fierce conflict among the country’s oligarchs opposition force, the Communist Party, withdrew beneficiaries of EU funds. EU assistance supports, is taking place that is increasing the distortion
that became public in 2013, demonstrated that its support for European integration and began among others, the justice sector and healthcare of information and polarisation. The Moldovan
Moldova’s reforms were not necessarily sustain- to advocate rapprochement with Russia and its reforms, energy efficiency, and vocational educa- legislators who own media through off-shore
able and could be easily reversed if the economic new Eurasian project instead. Polarisation on tion and training. companies are blocking legislation on media own-
interests and power of the ruling class were in European integration is also deepening among ership transparency that is crucial to ensure an
jeopardy. The transparency of the decision-mak- voters. A recent opinion poll showed almost equal Despite Moldova’s relative successes in develop- unbiased reflection of political processes taking
ing process remains limited, despite the fact that support for the EU (50.3%) and for the Russia-Be- ing closer relations with the EU, the pace of Euro- place in the country.
Moldova scores high on accountability and media larus-Kazakhstan Customs Union (52.1%). When pean integration disappoints a significant part of
freedom in comparison with other EaP states. people are asked to choose between the two in a Moldovans themselves. The country’s politicians The Moldovan economy showed no signs of
possible referendum, the EU has a slight advan- raise expectations recklessly high and create the recovery, with GDP slipping 0.8% in 2012. The
On the domestic level, Moldova managed to show tage (18.6%) over the Russian project (17.4%). illusion of that results will be quick. Former For- business climate remains largely unfavourable.
progress on several issues, including the removal eign Minister and current Prime Minister Iurie Moldova holds 83rd position in the 2012 Doing
of one of the key obstacles to progress and stabil- Moldova’s reform process lost a little steam in Leanca promised that Moldovans would have vi- Business rating, just a small improvement from
ity: a 3 year-long political deadlock, which ended 2012 and the beginning of 2013. The primary sa-free travel to the EU by the end of 2012, while the 86th position in 2011. For comparison Geor-
with the election of the President. The legitimate cause was the political crisis and in certain cases the previous Prime Minister, Vlad Filat, promised gia is on the 9th place. At the same time, in Link-
candidate finally took office in March 2012. The lack of political will. Insufficient capacity to that Moldova would sign a new agreement with age in the area of trade of services with the EU,
Index shows that Moldova demonstrated serious implement previously adopted laws was another the EU at the Vilnius Summit. Such unrealistic Moldova has second worst results after Armenia,
progress in 2012, but the political crisis, the major reason for the country’s worsening perfor- promises are one of the reasons why support for while Ukraine, despite the high level of corrup-
politicisation of state institutions and the polari- mance. the EU has been declining among voters. tion, has done the best. On Linkage, Moldova also
sation of the press are creating unfavourable con- has very modest results on energy, ranking 4th
ditions for the implementation of reforms. This At the same time, serious progress was achieved Moldova, once the EU’s favourite, has lately among the EaP countries.
could end Moldova’s role as the EaP poster child. in the implementation of the Visa Liberalisation become a country of odd contrasts. On one hand,
Action Plan (VLAP), when Moldova adopted all it has shown progress in adopting anti-discrim-

32 33
 The government has yet to convince ordinary
Moldovans of the benefits of the DCFTA. The
business community remains undecided and
there is no consensus on the costs and benefits
of the DCFTA. One of the main concerns among
businesses is that local producers are likely to fail
once faced with competition from EU products.
In the short and medium term, this might gener-
ate new problems, such as declining trust in the
EU and the inability of the Moldovan companies
to develop.

On Approximation, Moldova is leading in most ar-

eas, including on elections and public administra-
tion. When it comes to Management of European
Integration, Chisinau is again among the leaders,
although important shortcomings can be seen in
training and awareness-raising in this area.

Considering all this, Moldova has made good

progress, compared to other countries in the
region. However, many reforms have been only
partly implemented and significant efforts need
to be put into finalising these reforms. Moldova
should not dither but rather put its reforms into
practice in a sustainable manner.

34 35
 Moldova Moldova
Linkage Approximation Management

0.70 0.67 0.59

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)

0.79 0.75 0.73

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.71 0.61 0.59

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.61 0.65 0.63

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.71 0.29

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.68 0.36

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.92

36 37
 Georgia Georgian Dream Coalition, the intimidation and tices within the justice system and significantly right after the election, stressing that the change
harassment of opposition supporters, the use of harmed the chances of the ruling party. of Government would not change Georgia’s
Georgia made good progress in 2012 and early administrative resources by the incumbent party, foreign policy vector. Besides, in 2012 Georgia
2013. The country improved its performance on and alleged vote buying undermined the efforts Since the parliamentary elections, co-habitation has hosted several high level visits of EU officials,
most aspects of the Index, including deep and of the Saakashvili Administration to deliver the between the Georgian Dream and the United Na- including European Council President Herman
sustainable democracy, and received increased promise of ‘genuinely free’ elections. tional Movement has proved challenging. Presi- Van Rompuy, EU Commissioner Štefan Füle and
EU assistance in return for its progress. As in the dent Saakashvili has vetoed several legislative High Representative Foreign Affairs and Security
2012 Index, Georgia remains the second best per- By the end of 2011, the Parliament introduced initiatives introduced by the ruling coalition, in- Policy Catherine Ashton.
former after Moldova among the EaP countries. stringent party financing regulations that sig- cluding an amnesty law and a package of legisla-
Still, numerous shortcomings were observed dur- nificantly increased the discretionary power of tive amendments aimed at reorganising the High Active negotiations between the Georgian
ing the parliamentary election in October 2012. the State Audit Office, previously the Oversight Council of Justice. In both cases, the Parliament Government and the European Commission
This led to a difficult ‘co-habitation’ between the Chamber, banned donations from legal entities, was able to overturn the presidential veto. continued after the election. The Second Infor-
two biggest parties in the Parliament, which are and imposed disproportionate fines and restric- mal Eastern Partnership Dialogue was held in
headed by the country’s President and Prime tions on companies and individuals with ’declared The judiciary benefited from the improved legisla- Tbilisi on February 12-13, 2013. Negotiations
Minister. political and electoral goals’. In March 2012, how- tive environment introduced after consultations over the Association Agreement and DCFTA were
ever, the legislation was watered down somewhat with CSOs in March 2012. However, judiciary has concluded in July 2013. Negotiations on visa
The 2012 elections dominated political develop- after pressure was brought to bear by Georgia’s remained largely dominated by the Prosecutor’s liberalisation advanced significantly as well, with
ments in Georgia during the period assessed in vibrant civil society organisations. Office and, as the prison scandal showed, it did the launch on 4 June 4, 2012 of the Visa Liber-
the Index. High-ranking officials from among not provide a proper response in cases involving alisation Dialogue. On February 25, 2013, EU
Georgia’s strategic partners, including the EU, Throughout the reporting year, there were veri- human rights violations. A package of amend- Commissioner for Home Affairs Cecilia Malm-
frequently emphasised the importance for the fied cases of harassment of opposition supporters, ments passed by the newly-elected Parliament, strom presented the new Government of Georgia
country’s Euro-Atlantic inspirations of elections politically motivated dismissals from the civil ser- closely reflecting the recommendations of civil with a Visa Liberalisation Action Plan (VLAP).
that met international standards. While official vice and arrests of political activists. In Septem- society and the Venice Commission, could play Georgian officials expect that the first phase of
rhetoric remained unchanged and strongly in ber 2012 alone, some 60 opposition supporters a crucial role in the fundamental reform of the VLAP, which requires meeting the benchmarks
favour of European integration, in the run-up and activists were arrested and 44 were impris- judiciary. However, the results of the reform have related to the establishment of legislative, policy
to this election, the government was unable to oned for misdemeanors. The arrests were alleged- yet to be tested. and institutional frameworks, will be concluded
foster a pre-election environment that fully met ly carried out arbitrarily and without due process. before the Eastern Partnership Vilnius Summit in
European standards. Despite the strong polarisa- 2012 was also marked by large-scale rallies staged Before this election, Georgia’s Parliament re- November 2013.
tion before the actual election, Georgia managed by political parties to get their messages out to mained a relatively weak institution dominated
the first ever peaceful transfer of power and this voters. While there were reports of smaller scale by one ruling party. However, the 2012 elections Communication between Georgia’s political par-
was assessed as a major achievement by Georgia’s peaceful gatherings being curtailed, mostly in brought it new life. A new political force in the ties and their European counterparts has also
key partners. According to OSCE/ODIHR, the the regions, these demonstrations were gener- majority and a strong opposition presence from increased. Before the election, a debate on the
2012 parliamentary elections “marked an impor- ally conducted in a calm atmosphere without any the former ruling party gives a promising signal situation in Georgia took place in the European
tant step in consolidating the conduct of demo- interference on the part of the authorities. that the institution could play a key role in bal- Parliament (EP). Another debate on October 26,
cratic elections in line with OSCE and Council of ancing the executive branch. 2012 resulted in an EP resolution on the parlia-
Europe commitments.” The media environment largely benefited from a mentary elections in Georgia. A subsequent blunt
civil society driven campaign called ’This Affects Meanwhile, however, there have been alarming exchange between the Prime Minister and the
The political landscape in Georgia changed dra- You, Too’. What’s more, after consultations with signals with dismissals of government work- Speaker on one hand and the European People’s
matically after Bidzina Ivanishvili, a Georgian bil- CSOs, the Parliament introduced ‘Must Carry, ers and officials from local government in the Party on the other demonstrated that Georgia
lionaire, declared his intention to run against the Must Offer’ provisions into the Election Code in regions. According to information from reliable remains high on the agenda of European political
ruling United National Movement party in the June 2012. These amendments increased access CSOs, more than 1,000 employees in local gov- parties. Judging from past experience when the
October election. On one hand, the emergence of to alternative information for those residing in ernment bodies were laid off within four months international community was reluctant to voice
a strong opposition force on a political stage long the regions. of October 2012. any concern over serious human rights viola-
dominated by the ruling party was seen as a posi- tions in Georgia, scrutiny from European actors,
tive step towards a genuine, pluralistic democracy. The leakage of video material showing the ill- The foreign policy vector has occupied a cen- particularly of a non-partisan nature, should be
On the other, polarisation between the ruling Na- treatment and torture of prisoners at a peniten- tral place in parliamentary debates. The Prime welcomed.
tional Movement Party and the then-opposition tiary in September 2012 uncovered abusive prac- Minister chose Brussels for his first foreign visit

38 39
 Indeed, this Index shows intensified political
dialogue and improved cooperation between the
EU and Georgia in many sectors, especially in
freedom, security and justice. People-to-people
contacts have not improved, however, suggesting
that more efforts are needed to increase freedom
of movement among Georgians. How Georgia
manages European integration did not see signifi-
cant improvement in 2012 and early 2013. Still,
Georgia continues to show relatively high results
compared to other EaP countries, almost at the
same level as Moldova.

40 41
 Georgia Georgia
Linkage Approximation Management

0.57 0.63 0.58

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)

0.69 0.64 0.63

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.54 0.66 0.59

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.51 0.59 0.56

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.47 0.36

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.65 0.43

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.92

42 43
 Ukraine Unfortunately, the overall climate of EU-Ukraine abuse of administrative resources, a lack of bal- lated acquis, and has not yet started the reforms
relations has noticeably deteriorated, with anced media coverage, and problems with the called for in the Third Energy Package. Given the
In 2012, Ukraine and the EU finally initialed the President Viktor Yanukovych gradually becom- tabulation and verification of election results in a political sensitivity of the issue, the political lead-
Association Agreement (AA), including the Deep ing an unwelcome guest in most EU capitals. To number of single-mandate districts. ership remains unwilling to increase residential
and Comprehensive Free Trade Area (DCFTA), ne- demonstrate their protest against the political gas rates and, thus, has not achieved any prog-
gotiations for which had been completed in late persecution of opposition politicians, the major- At the same time, Ukraine improved its record on ress in renegotiating the Stand-By Arrangement
2011. However, Ukraine failed to show any prog- ity of European leaders boycotted Euro 2012, the human rights by adopting a free legal aid system (SBA) with the International Monetary Fund. The
ress in 2012 in fulfilling the conditions set out by European football championship co-hosted by and setting up a national national preventive SBA expired in 2012 and was a precondition for
the EU for signing the AA. Most importantly, it Ukraine and Poland in summer 2012. The May mechanism against torture. It also improved non- receiving EU macro-financial assistance in worth
failed to conduct free and fair parliamentary elec- 2012 East-Central European Initiative Summit in discrimination policies in 2012 by amending the EUR 610 million.
tions in October 2012 and to end selective justice. Yalta had to be cancelled because the majority of Law on Advertisement aimed against discrimina-
European leaders refused to attend. tion in job ads on the ground of sex and age and As to the business climate, Ukraine improved its
To facilitate the signing process, on December adopted a non-discrimination framework law, performance due to progress made in the areas of
10, 2012, EU Foreign Ministers decided that the 2012 and early 2013 were marked by grow- which, nevertheless, failed to meet EU standards. starting business and paying taxes. Ukraine also
next Eastern Partnership Summit in Vilnius in ing pressure from Moscow on Kyiv to join the It needs to be amended to ensure effective imple- made progress in facilitating market entrance,
November 2013 would be a good opportunity Russia-led Customs Union and growing debate in mentation by shifting the burden of proof of dis- with related procedures now requiring less time
to sign the AA—provided that Ukraine demon- Ukraine on the issue. The EU made it consistently crimination from the victim on the offender and and resources. Still, Ukraine continues to share
strated ‘determined action and tangible progress’ clear that membership in the Customs Union was prescribing legal penalties for the offense, as well the lowest business climate score among the
in three areas: free and fair elections, that is, incompatible with a DCFTA with the EU. For the as to broaden the basis on which discrimination EaP countries with Belarus. This is particularly
organising fair elections in five contested districts time being, the European choice seems to have is prohibited, namely, to include sexual orienta- disappointing, given Ukraine’s leading position in
and adopting an Electoral Code; ending selective held its dominant position at the political level tion as a ground in the Labour Code. That would trade with and FDI from the EU, not to mention
justice and implementing the decisions of the in Ukraine, at least de jure. Ukraine requested pave the way to the second phase of the Visa the fact that Ukraine was the first EaP country to
European Court of Human Rights; and under- and was granted observer status in the Customs Liberalisation Action Plan (VLAP) with the EU. start and finalize DCFTA negotiations.
taking a number of reform steps defined in the Union, thus avoiding a zero-sum situation. Public
jointly agreed Association Agenda, mostly related opinion among Ukraine’s voters is less clear cut: Ukraine is the only country in the EaP region that Lack of political will for reforms reveals itself in
to rule of law, fighting corruption and improving some polls show more support for the EU, others shows a big gap between links with the EU and other ways, too. For instance, Ukraine is the only
the business climate. show more support for the Customs Union. Over- approximation to EU standards. Thus, although country in the region, along with Belarus, that
all, public opinion remains indecisive and highly Ukraine is a leader among EaP countries in politi- has not yet started issuing biometric passports.
In late 2011, the European Parliament even or- receptive to manipulation. The fact is that the cal dialogue, trade and economic integration and It has also so far failed to conclude negotiations
ganised a special mission consisting of the former overwhelming majority of Ukrainians, 77%, has cooperation in different sectors in Linkage of on the Open Sky Agreement with the EU, which
EP President Pat Cox and former Polish Presi- never been to any EU member states. This means this Index, it lags behind Moldova and Georgia would liberalise its domestic aviation market,
dent Alexander Kwasniewski initially intended that there is enormous potential for improving in deep and sustainable democracy and even although Moldova and Georgia did so long ago.
to assist Ukraine in ending selective justice. By Ukraine’s people-to-people links with the EU: behind Armenia in market economy and DCFTA Moreover, while Moldova, Georgia and Armenia
July 2013, the Mission had visited Ukraine 19 according to the Index, Ukraine significantly lags under Approximation. This means that Ukraine were granted additional funding in 2012, Ukraine
times and was given the mandate to facilitate the behind Moldova here. is not taking full advantage of its geographical did not even make use of the funding already
broader reform process. proximity and is unable to translate its privileged available. Since 2011, EUR 170 million in direct
The failure of Ukraine to carry out domestic relationship with the EU into greater closeness budget support has been frozen because of
Despite the EU’s efforts, the politically-motivated reforms, especially those pertaining to democ- with EU system. Ukraine’s inability to meet sector-specific condi-
jailing of former Prime Minister and opposi- racy, is well reflected in the Index. In deep and tions and reform the system of managing public
tion leader Yulia Tymoshenko still had not been sustainable democracy Ukraine ranks third after Reforms in specific sectors offer good examples funds. While EUR 70 million of that sum is gone
resolved by July 2013. In April 2013, President Moldova and Georgia and only slightly above of this discrepancy. Although Ukraine is a leader forever, since Ukraine failed to bring its civil ser-
Victor Yanukovych issued a decree on pardoning Armenia. In 2012, Ukraine’s record for press free- when it comes to energy integration, it is only vice legislation in line with EU requirements, the
another opposition leader, former Interior Min- dom, freedom of association and assembly and fourth in energy legislation convergence and pol- country could still receive the remaining EUR 100
ister Yuriy Lutsenko, who had been sentenced independent judiciary worsened slightly, while icy. Indeed, despite membership in the European million if it reforms the management of public
to four years in jail for alleged abuse of office in its record for elections worsened significantly. Energy Community since 2011, Ukraine has not funds. This reform will also release the alloca-
February 2012. This move was positively assessed Indeed, the October 2012 Verkhovna Rada elec- shown any major results in adhering to its com- tion of an additional EUR 150 million now being
by the EU, but only as the first step in addressing tions were criticised for failing to provide a level mitments, including the implementation of re- negotiated.
the bigger issue of selective justice. playing field, primarily because of widespread

44 45
 In Management of European integration, Ukraine
lags behind Moldova and Georgia and shows only
slightly better results than Armenia. No institu-
tion coordinating European integration policy
was established at the central level in Ukraine
after the dissolution of the Coordination Bureau
under the Secretariat of the Cabinet of Ministers
back in 2010. Although one of the Vice Prime
Ministers was responsible for EU integration
issues until 2012, since the formation of the new
Government in December 2012, Prime Minister
Mykola Azarov, declared himself personally in
charge of European integration. Nominally, this
raised the political weight of EU-related issues,
but did little to facilitate implementation. Still,
Ukraine has maintained its leading positions
in legal approximation. This is not to say that
comprehensive approximation is really taking
place in Ukraine, but is more the afterglow from
policies and procedural arrangements introduced
before the current Administration came to power
in 2010.

Ukraine also shows good results in training civil

servants in European integration, since it has a
special educational program at the School of the
Senior Civil Service under the National Acad-
emy of Public Administration. At the same time,
Ukraine has the lowest score in EU assistance
management, much like Azerbaijan, because
its mechanism for aid coordination under the
Ministry of Economic Development and Trade is
ineffective.

46
 Ukraine Ukraine
Linkage Approximation Management

0.65 0.58 0.52

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)
0.43
0.88 0.60

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.72 0.54 0.66

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.66 0.60 0.44

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.54 0.50

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.46 0.36

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.75

48 49
 Armenia a more realistic shape, professional and impar- investigative journalists to end with bankruptcy participate in information exchange initiatives.
tial assessments of the costs and benefits of one has not continued. Armenia also set up a unit to This was, among others, demonstrated in its
Over the year since the presentation of the previ- or the other integration agendas are needed in enforce Intellectual Property Rights (IPR) under greater readiness to provide key information for
ous EaP Index, the discourse and approach of the order to move discourse in Armenia into a more the republic’s Customs Service. This was impor- studies like this EaP Index, and for civil society
Armenian Government within the Eastern Part- constructive dimension. tant to meet DCFTA requirements. to monitor the implementation of the Eastern
nership has changed. On one hand, certain steps Partnership Road Map. This change of attitude is
have been taken with regard to domestic policy When it comes to the domestic reform process, The liberalisation of the judicial practice, balanced partly the result of effective work by CSOs and,
and technical reforms, which resulted in advances the time covered by this Index was marked by a coverage of electoral campaigns and progress crucially, by the consistent stand of the EU Com-
in negotiations. This led to Armenia being seen cycle of elections. Parliamentary elections took in the application of the right to freedom of mission and European External Action Service in
as a good pupil and is reflected in improved Index place in May 2012, Presidential elections in Feb- assembly resulted in an improvement in Arme- supporting the engagement of civil society in EU
scores for the country on many aspects. Overall, ruary 2013, and municipal elections after that. As nia’s scores in international indices measuring integration process, including through the Civil
six negotiation rounds on the DCFTA were held reflected by the scores in this Index, Armenia’s democracy and human rights, such as Freedom Society Forum and its national platforms.
and negotiations concluded in July 2013, while electoral environment has improved and inter- House and Reporters Without Borders, as well as
the EU strengthened its positions as Armenia’s national and local observers recognised progress the EaP Index. Much work still needs to be done in Armenia in
main trade partner. Readmission and Visa Facili- in press coverage of the electoral process and the terms of raising public awareness about Euro-
tation Agreements between the EU and Armenia absence of violence. At the same time, the use of Still, many problems are unresolved. The judiciary pean integration and the benefits it offers to the
were signed and, importantly, as of 2013, Arme- administrative resources to the advantage of the remains by and large dependent on the executive. domestic reform process. One of the distinc-
nia lifted visa requirements for EU citizens travel- ruling party, vote-buying, the non-participation Armenia has not yet adopted legislation crimi- tive features of the most recent 18 months in
ling to Armenia. of some influential candidates in the elections, nalising domestic violence. The draft anti-dis- Armenia was the lack of public discussion of the
the low level of voter trust in the official results crimination legislation is hardly comprehensive. official EU-Armenia dialog. Even though the
On the other hand, heated debates over the as a whole all suggest that expectations regarding There are no new developments in fight against official dialog progressed rapidly and effectively,
Eurasian Union and the Customs Union as an free and fair elections meeting European stan- corruption, not even improvements in the state its specific elements did not form part of the
alternative to the Association Agreement and dards were not entirely met. procurement system. Despite overall improve- political agenda or the election debates and was
Deep and Comprehensive Free Trade Agreement ment in the management of European integra- poorly communicated by the Government, with
have challenged the earlier consensus regarding The same concerns a number of key reforms that tion, the Government continues to lack a certain the result that awareness of European integration
European integration among the country’s politi- Armenia committed to in its 2006 Action Plan. capacity to deal with all aspects of the process. processes remains low among Armenians. This
cal elites. Although the Armenian Government While there have been definite improvements, Armenia did not establish specific positions to undermines the ‘more for more’ approach being
has strived to dismiss any perception that these many problems still need to be tackled. On the deal with legal approximation with EU within pursued by the EU, since Armenian voters still
two initiatives contradict each other, the mutual positive side, recent progress in ensuring the the legal services of government bodies, nor the do not see any fruits of the European integration
exclusion of the two integration processes was right to freedom of assembly and the handling of necessary monitoring and reporting systems. The agenda in many areas of the domestic reform
voiced publicly by some Armenian and foreign defamation cases in the courts needs to be recog- same is true for the monitoring and evaluation of process, particularly in environmental protection,
politicians and officials, and members of the nised. Whereas in previous years, the exacerbat- EU assistance. fighting corruption, education and other areas
expert community and the topic has become ing tensions around elections led to the restraint that are of concern to ordinary citizens.
controversial. of the opposition’s right to conduct rallies and Importantly, progress in several key reform areas
gatherings, the 2012-2013 election was charac- mentioned earlier is clearly linked to the efforts
The avoidance of the topic by Armenian politi- terised by the absence of any visible obstacles of civil society, its monitoring on the current
cians during recent election campaigns also for political parties and candidates to meet with state of affairs and its constantly offered exper-
suggested that this was a divisive issue and raised voters in any format. Rallies were held in central tise. For a long time, the Government underesti-
doubts as to whether getting closer to the EU is Yerevan without interruption or interference. mated the potential contribution of independent
an obvious and easy choice for Armenians. A rise civil society organisations (CSOs) to the EU inte-
in the price of Russian gas supplied to Armenia Judicial practice in 2012 largely dispelled con- gration process and civil society was regarded as a
in 2013 and some other steps by Moscow have cerns about the negative effects of the decrimi- thorn in the side of a Government agenda based
further exacerbated the situation and given rise nalisation of libel and insult in Armenian legisla- largely on imitating reforms. But in 2012 and ear-
to a widespread perception among Armenian tion. The tendency of Armenian courts to impose ly 2013, there was a marked change in relations
voters that their country is being punished for high fines for moral damage, which was observed between Armenian CSOs and the Government
‘lack of loyalty.’ Now, as the prospects of signing shortly after the decriminalisation in 2010 and of the Republic of Armenia. The Government has
the Association Agreement with EU are taking on threatened the most critical media outlets and demonstrated greater openness to discuss and

50 51
 Armenia Armenia
Linkage Approximation Management

0.49 0.59 0.51

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)

0.69 0.59 0.57

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.54 0.57 0.47

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.23 0.62 0.50

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.46 0.57

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.52 0.43

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.50

52 53
 Azerbaijan tions and a breakthrough in negotiations on the and even assaulted, while newspapers were the Government to adjust the GDP growth rate
Visa Facilitation Agreement—negotiations are swamped with lawsuits. The opposition Azadliq downward from its projected 5.7% to 2.2 % in
EU-Azerbaijan relations continued to develop complete and the VFA will be signed in Vilnius in newspaper was on the verge of closure after a lo- 2012. The state budget continued to benefit from
in 2012 against the background of Azerbaijan’s late November—official statements and lack of cal court slapped it with high fines on defamation significant transfers from the State Oil Fund
active foreign policy, which resulted in a number progress in reforms reflected the Government’s charges. Worse, against international recom- (SOFAZ). Yet, SOCAR, the national oil company,
of achievements aimed at garnering visibility increasing tendency to cherry-pick areas of coop- mendations, criminal defamation charges were continued to expand its investments abroad and
and prestige for Baku. Azerbaijan chaired the UN eration as opposed to embracing the broader inte- extended to the relatively open territory of the issued 500 million Eurobonds. It also opened a
Security Council in May-June 2012; it hosted gration agenda in relations with the EU. Officials internet. network of gas stations in Switzerland, Ukraine
the Eurovision Song Contest in June and the UN continue to express interest in ‘strategic’ coopera- and Georgia, and started construction on a STAR
Internet Governance Forum in November 2012; tion with the EU, but the low level of approxima- Moreover, in 2012 and early 2013, Azerbaijan refinery in Turkey.
it reached agreement on discontinuing the lease tion reflects a lack of political will and incentive, continued to translate its policies into legislation
on the radar station in Gabala by the Russian while the still unfinished negotiations with the in a manner that strengthened the institutions Azerbaijan was once again 5th place in the Index,
military; and the capital city of Baku was selected WTO keep the country from signing DCFTA. of authoritarian rule. Among laws directed at re- outperforming only Belarus on many dimen-
to host the inaugural European Games in 2015. By contrast, Azeri civil society demonstrated a stricting access to information, freedom of press sions. According to the Index, Azerbaijan’s links
high level of interest in European integration, as and assembly were provisions increasing fines with the EU intensified on many levels in 2012.
At the same time, Azerbaijan reasserted its lead- witnessed by numerous public statements by and detentions for participating in public meet- Azerbaijan has also slightly improved its business
ing role in EU and regional energy security by civil society leaders and the highest number of ings; provisions allowing commercial information climate and approximation in most sectors. At
signing an agreement on the construction of the applications of all 6 EaP countries to participate to be secret; and provisions criminalising defama- the same time, its overall democracy aspect has
Trans Anatolian Pipeline or TANAP, a pipeline in the 2012 Assembly of the Eastern Partnership tion on the internet. Although the Government deteriorated. For instance, its record of elec-
that would connect natural gas producer Azerbai- Civil Society Forum. finally introduced public funding for political tions remains the worst in the region. Azerbai-
jan and transit state Turkey to provide an alterna- parties, due to the controlled nature of Azeri elec- jan shows no improvement in Management of
tive gas line to Europe over which the Azeri state Azerbaijan’s political life was characterised in tions, its impact on the development of a proper European integration despite the fact that it
oil company has a control. These successes in for- 2012 by increased spontaneous social protests, party system will be minimal—and could even be re-structured its State Committee for European
eign policy and energy security were marred by amid growing activism in civil society and the counterproductive to pluralism. Integration, which is now headed by the Minister
the lack of progress in resolving the decades-old opposition. The opposition was joined by a broad for Economic Development.
Nagorno-Karabakh conflict: hostilities erupted coalition of intelligentsia, young professionals While the possibilities for petty corruption were
again in June 2012, which led to a greater than and youth movements. Independent civil society somewhat reduced with the introduction of a new Azerbaijan’s significance will grow in 2013, fol-
usual number of casualties along the line of con- groups used the Eurovision Song Contest to run system of rendering services to the population lowing the decision to choose pipelines to take
tact. Moreover, Azerbaijan saw worsening of state an advocacy campaign called ‘Sing for Democracy,’ known as the Azerbaijan Service and Assessment gas further from the borders of Turkey to Europe-
of democracy and human rights record and a clear which drew attention to human rights violations Network (asan.gov.az), the country was shaken an markets, given the tensions with Iran and the
move away from European standards in this area. in Azerbaijan. The Government responded by by a series of revelations in publications and upcoming withdrawal of US troops from Iraq and
stepping up pressure on NGOs, journalists, hu- videos disseminated via social media that told of Afghanistan. This will give its authorities much
The country’s growing self-confidence and man rights advocates and youth groups. Criticism large scale corruption with the involvement of more room to maneuver in this election year,
increasing role on the international and regional of the state of human rights in Azerbaijan caused high level officials and the President’s family. The when President Aliyev is going to try for a contro-
stage were reflected in the nature of EU-Azerbai- further tension in relations with Germany in impact of corruption spread well beyond state versial third term in office. Despite his seemingly
jan relations in 2012. Within the framework of Spring 2012. Politically-motivated arrests, which borders through what an independent European firm grip on power, the growing mobilisation of
political dialogue, European Council President had intensified in 2011 in reaction to opposition research and policy institution termed ‘caviar di- civil society and the opposition, as well as grow-
Herman Van Rompuy visited Baku in July 2012, rallies inspired by the Arab Spring, continued plomacy.’ For instance, despite revealing publica- ing social protest in early 2013, could force the
European Commission Vice President Neelie into 2012, with more severe trumped-up charges. tions and increased attention to the situation in Government to adjust as the international com-
Kroes in November, and EU Commissioners While one group of political prisoners was am- Azerbaijan, the Council of Europe’s co-rapporteur munity pays increasing attention to the country.
Stefan Füle and Günther Oettinger in April and nestied in June 2012, an increasing number of Christofer Strasser was prevented from getting Oil-rich Azerbaijan’s strategic location between
August. Baku also hosted the second Euronest human rights advocates, youth activists including approval for his report on political prisoners in Russia, Iran and Turkey will keep the elections at
meeting, which was the first to take place out- members of the NIDA movement, bloggers and, Azerbaijan at the PACE session in January 2013 the centre of attention among external powers.
side the EU. Yet the only official EU-Azerbaijan most recently, in February 2013, two opposition because of opposition within the Parliamentary For the EU, the upcoming presidential election
meeting on human rights took place within the activists, Tofiq Yagublu, a journalist and second- Assembly. will represent an even harsher test of its capacity
subcommittee of Freedom Security and Justice, in-command of the opposition Musavat Party, to reconcile value-based and interest approaches
not as a separate institution. and Ilgar Mammadov, a presidential candidate Azerbaijan’s economic growth continued to be to its Eastern Neighbourhood.
from the REAL movement, were placed behind heavily dependent on oil production and rev-
Despite some progress on economic and legal bars on what appear to be trumped-up charges. enues from it. Yet production witnessed a further
54 issues in the Association Agreement negotia- Journalists were subjected to smear campaigns decline in 2012, dropping by 5.5 % and forcing 55
 Azerbaijan Azerbaijan
Linkage Approximation Management

0.41 0.42 0.33

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)

0.62 0.31 0.23

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.57 0.43 0.41

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.36 0.53 0.44

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.28 0.29

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.25 0.21

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.42

56 57
 Belarus ation, Belarusian authorities put together a list At the same time access to credits and declaring
of about 40 opposition politicians, civil society insolvency became more cumbersome. Belarus
In 2012, Belarus found itself in political and activists, independent journalists and analysts also improved its record of approximation to
economic stagnation, which is reflected in its low, who have been banned from travelling abroad. EU standards in most sectors and its record of
but stable scores in the Index. Belarus lags far Only after civil society representatives challenged fighting corruption: legislation was improved and
behind the other countries in the region, both in the ban were the restrictions removed. Continu- the number of corruption crimes decreased from
its links with the EU and in its approximation to ing checks by the Ministry of Taxes and Duties 2416 in 2011 to 1779 in 2012.
European standards. on some public figures suggest that pressure on
dissidents has not diminished. Furthermore, in In spring 2012, the EU launched an exclusive
Belarus’s 2012 parliamentary elections were June 2012, the Belarusian legislature introduced initiative for Belarus called the European Dia-
marked by serious violations of international and administrative penalties for carrying out un- logue for Modernisation with Belarusian Society
domestic standards for fair democratic elections. sanctioned public opinion polls, which is likely (EDM). The new mechanism offers an additional
The elections took place in an atmosphere of po- to seriously limit the activity of independent platform for communication and cooperation
litical persecution of the government’s opponents sociologists. among civil society, business and the authorities.
that prevented voters from making an informed The EDM can be also used to build capacity in
choice. The use of administrative resources for The EU’s sanctions provoked a harsh counter- civil society and a human resource pool capable
the benefit of pro-government candidates was reaction. Belarusian authorities expelled one of of developing and implementing modernisation
widespread throughout the campaign. State the European ambassadors in August 2012 and programs. So far, however, the EDM has not
media published compromising materials about increased persecution within the country. The proved its effectiveness. Its ultimate goals remain
the activity of opposition forces. Compared to two diplomatic crises were followed by intensi- unclear, it lacks financial resources and there is
the 2008 parliamentary elections, the rules fied political and diplomatic contacts at the end little interest among Belarusian authorities to
for campaigning were nevertheless improved. of 2012. This trend continued in the first half cooperate with it.
However, authorities restricted the campaigning of 2013. In June 2013 the EU suspended the
opportunities envisaged by the new legislation. Belarusian Minister for Foreign Affairs, Vladimir The dynamics of Belarus-EU relations remain
Ballot counting was not transparent. In the end, Makey, from its travel ban in order to facilitate largely dependent on how relations go between
not a single opposition candidate gained a seat in diplomatic contacts between the two partners. Minsk and Moscow. Overall, Belarus continues
the legislature. Both sides were firm about their interest in to adhere to a policy of maneuvering between
constructive dialog and improved relations. Still, its two major partners. Belarus approaches the
Belarus refused to cooperate with the newly ap- official Minsk consistently demonstrated reluc- EU only when it has problems with Russia. Its
pointed UN Special Rapporteur on Belarus, who tance to fulfill the EU’s demands on democracy foreign policy is guided by tactical considerations
issued the first report depicting systemic restric- and human rights. and highly dependent on external political and
tions of fundamental freedoms and abuse of economic circumstances. European integration is
human rights by the authorities. Despite the fact Meanwhile, Belarus continued informal commu- not one of the goals being pursued by Belarusian
that the number of politically-motivated admin- nication and negotiations with Brussels. Despite authorities. Under such circumstances, there is
istrative arrests fell in 2012, from 323 in 2011 to conflicted relations at the political level, trade little hope for any breakthrough in EU-Belarus
6 100,6 the persecution of human rights activists, and business relations continued to develop relations.
Viasna Human Rights
journalists, political opponents and other activ- successfully, as well as bilateral relations with
Centre database
www.spring96.org ists continued. Three political prisoners were individual member states. For instance, Belarus
(In Belarusian only) released during the year, while nine still remain enjoys the highest level of trade in services with
behind bars. the EU among the EaP countries. Surprisingly,
Belarus citizens receive the most EU and Schen-
During 2012, the EU expanded its sanctions gen visas per capita among EaP countries.
against Belarusian officials accused of human
rights violations. The EU list contains 243 indi- When it comes to domestic reforms, business
viduals who under a travel ban and have had their climate marked slight improvement, mainly
assets frozen. Moreover, 32 Belarusian compa- due to lower expenses for construction per-
nies are also subject to the asset freeze. In retali- mits and de-bureaucratisation of tax procedure.

58 59
 Belarus Belarus
Linkage Approximation Management

0.31 0.33 0.24

I N S T I T U T ION A L
A R R A N G E ME N T S F OR
DE E P A N D S U S TA I N A B L E EU ROPE A N I N T E G R AT ION
POL I T IC A L DI A L O G U E DE MO C R AC Y (coordination and implementation)

0.28 0.27 0.03

T R A DE A ND E C ON OM IC L E G A L A PPROXI M AT ION
I N T E G R AT ION M A R K E T E C ON OM Y and DC F TA ME C H A N I SM

0.38 0.38 0.03

M A N AG E ME N T
SE CTOR A L C O OPE R AT ION S E C TOR A L A PPROX I M AT ION OF EU A S SI S TA N C E

0.32 0.35 0.81

T R A I N I N G I N T H E FI E L D OF
PE OPL E -TO- PE OPL E EU ROPE A N I N T E G R AT ION

0.34 0.00

AWA R E N E S S R A I SI N G
A S SI S TA N C E ON EU ROPE A N I N T E G R AT ION

0.21 0.14

PA RT IC I PAT ION
OF C I V I L S O C I E T Y

0.42

60 61
 Sector specific human rights dialogues. The EU is able to raise
human rights concerns with these two countries
difference between Moldova and Georgia, who
comes second, is relatively large. Ukraine and

assessment only within the Justice, Freedom and Security

(JFS) sub-committee.
Armenia share similar scores in third and fourth
position. Azerbaijan and Belarus are closing the
gap between their positions, but both lag signifi-
Ukraine has preserved its leading position in cantly behind the four frontrunners.
cooperation in the Common Foreign and Security Most importantly, Moldova, Georgia and Arme-
Policy (CFSP) and Common Security and Defence nia have improved their democracy performance
Policy (CSDP). Ukraine is the only EaP country in the current Index, which implies that these
that cooperates with both the EU Military Com- countries should be offered additional funding
mittee and the EU Political and Security Commit- from the Eastern Partnership Integration and
tee. At the same time, Moldova demonstrated a Cooperation (EaPIC) instrument, as happened
Political Dialogue At the same time, political parties from all EaP closer alignment with the EU foreign policy by last year. Ukraine stays on the same level as in
countries have established cooperation with subscribing to most of the EU CFSP statements the 2012 Index. Belarus has slightly improved its
Differences in the institutional framework that European political party families. It is notewor- and by signing the Framework Agreement on par- scores, while the situation in Azerbaijan slightly
govern the relationship between the EaP coun- thy that both ruling and opposition parties have ticipation in EU crisis management operations. deteriorated.
tries and the EU continue to influence the depth established links with European party families. Ukraine is still the only EaP country that partici-
and intensity of political dialogue. In this regard, Three of the six heads of state and govern- pates in EU military missions. In 2012 Moldova More specifically, Moldova shows deterioration in
Ukraine has many advantages over the other EaP ment — in Armenia, Georgia and Moldova — and Georgia received a positive reaction from Elections after the uncompetitive election of the
partners as it is the only country that holds an are affiliated with the European People’s Party. the EU regarding their potential participation President by the parliament. At the same time
annual summit and has seven cooperation sub- Remarkably, all three parties in the Moldovan in the EU EUCAP Nestor mission. At the same the country improved its performance in all other
committees. Although the annual EU-Ukraine governing coalition are associated with the three time, all EaP countries, except for Belarus, show aspects of democracy and human rights. Moldova
summit did not take place in 2012 due to a main European party families: People’s Party, the an interest in strengthening security cooperation was the first country in the region to adopt a
number of political factors, being postponed to Socialists and the Liberals. The number of parties with the EU, by participating in different CSDP comprehensive anti-discrimination law in 2012.
February 2013, Ukraine keeps its leading position that are members of or observers in parties at the consultations and trainings.
concerning activities of bilateral institutions. In European level varies from five in Moldova to two Georgia took over second place from Ukraine.
contrast, Belarus is the only EaP country that has in Azerbaijan. Georgia improved its score after the elections in
no contractual framework with the EU, i.e. no autumn 2012 and shows significant progress in
Partnership and Cooperation Agreement (PCA) As far as multilateral cooperation is concerned, all Deep and Sustainable Independence of Judiciary and Fighting Corrup-
and, although it is a part of the Eastern Partner- countries constantly participate in the work of Democracy tion.
ship Initiative, its bilateral relationship with the the Eastern Partnership institutions. In contrast
EU is frozen. to the bilateral track, Belarus is fully involved in The Index devotes special attention to Deep and Ukraine slipped down the rankings from second
the multilateral dialogue within the EaP institu- Sustainable Democracy – a concept which helps place and moved very close to Armenia in third
In 2012, Georgia, Ukraine and Moldova main- tions, except for Euronest. The participation of the EU to apply the ‘more for more’ approach. It and fourth place respectively. Ukraine’s score in
tained their leading positions relating to the Belarus in Euronest was indefinitely postponed looks at elections, media freedom, association Elections deteriorated, following the negative
density of high-level bilateral visits, while Azer- for political reasons. and assembly rights, human rights, independent assessment of its parliamentary elections by
baijan and Belarus lag behind. For the first time, judiciary, quality of public administration, fight- international and domestic observers. Instead
Armenia joined the frontrunners, thus suggesting EU cooperation on human rights has various ing corruption, accountability and democratic the country improved the situation of human
an increasing interest of the EU in strengthening formats and is of varying intensity with indi- control over security and law enforcement in- rights by adopting free legal aid and setting up a
relations with Armenia and encouraging further vidual EaP countries. Moldova, Georgia, Armenia stitutions. The Index shows which of the coun- national torture preventive mechanism. Ukraine
domestic reforms. and Belarus established dedicated human rights tries improved in these areas and thus deserve also adopted a non-discrimination framework
dialogues with the EU. However, the EU-Belarus additional rewards from the EU and which of the law, which, however, failed to comply with EU
Interestingly, Ukraine, Georgia and Belarus were dialogue took place only once, in 2009, and since countries regressed and might require a special standards.
the subject of the most statements released by then has been suspended. Moldova has two dedi- warning.
the European External Action Service (EEAS), cated meetings with EU officials a year, whereas Armenia shows improvement in Elections; Media
apparently due to the fact that all three countries Georgia and Armenia one meeting a year. Ukraine In the 2013 Index Moldova is again the best per- Freedom, Association and Assembly Rights; and
had parliamentary elections in autumn 2012. and Azerbaijan refused to launch dedicated former in Deep and Sustainable Democracy. The Independent Judiciary, with little changes in
other aspects of democracy.

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 Moldova Georgia Ukraine Armenia Azerbaijan Belarus
Deep and Sustainable Democracy

Deep and Sustainable Democracy

0.75 0.64 0.60 0.59 0.31 0.27

E L E CT ION S (national level) E L E CT ION S (national level)

0.75 0.56 0.51 0.46 0.05 0.16

ME DI A F R E E D OM, A S S O C I AT ION A ND A S SE MBLY R IGHT S ME DI A F R E E D OM, A S S O C I AT ION A ND A S SE MBLY R IGHT S

0.67 0.63 0.58 0.55 0.26 0.19

HUM A N R IGHT S HUM A N R IGHT S

0.75 0.59 0.72 0.55 0.48 0.13

INDEPE NDE N T JUDIC I A RY INDEPE NDE N T JUDIC I A RY

0.75 0.81 0.47 0.62 0.22 0.19

Q UA L I T Y OF PUBL IC A DMINI S T R AT ION Q UA L I T Y OF PUBL IC A DMINI S T R AT ION

0.78 0.52 0.59 0.63 0.49 0.34

FIGHT ING C OR RUP T ION FIGHT ING C OR RUP T ION

0.75 0.75 0.57 0.65 0.33 0.40

ACC OUN TABIL I T Y ACC OUN TABIL I T Y

0.83 0.63 0.74 0.66 0.34 0.48

64 65
 No positive changes were registered in Azerbaijan legitimacy of elections. Independent candidates election legislation and an inefficient system for The situation of media freedom is uneven. Mol-
over the last year. As Belarus improved its score had better opportunities to register as a result complaints and appeals. Lack of adequate mecha- dova remains the best performer, although ac-
in fighting corruption, the ranking gap between of amendments introduced to the Electoral Code nisms to ensure a balanced and equal media cov- cording to Reporters without Borders the media
the two countries is closing in relation to the in 2011. Moreover, electoral competitiveness erage is another problem. Although, it should be situation in the country deteriorated. Georgia
quality of democracy and human rights. increased significantly, as the difference between noted that the situation considerably improved comes second. Both Freedom House and Report-
the share of the votes in the parliament held by in Armenia, where 2012 saw unprecedented ers without Borders highlight improvements in
the strongest party (The Georgian Dream of Ivan- plurality in media coverage of the elections. The Georgia. Armenia comes third. While Freedom
ishvili) and the main oppositional party (United National Committee for TV and Radio monitored House praises Armenia’s progress, Reporters
Elections National Movement of Saakashvili) diminished. extensively what was broadcasted to ensure a bal- without Borders point to certain deterioration.
anced and equal media coverage. Local experts in Armenia state that the situation
The 2012 parliamentary elections held in Arme- Ukraine, on the contrary, experienced consider- rather improved, mostly due to unprecedented
nia, Georgia, Belarus and Ukraine did slightly able decline compared to the last year’s Index, None of the EaP countries has an effective system plurality in the media coverage of elections and
affect the scores on the quality of elections. While mainly because of the unlevel playing field preventing vote-buying, although all of them essential improvements in court practice on
the situation in Belarus did not change, the situ- and deficient implementation of new electoral have legislation prohibiting this action. Geor- defamation. Ukraine follows Armenia. Here while
ation in Georgia and Armenia improved and that legislation. Moreover, many problems with vote gia is the only state that provides both direct Freedom House shows deterioration, Reporters
in Ukraine deteriorated. Notwithstanding, an in- counting were registered. Overall both domestic and indirect public funding for political parties. without Borders point to certain improvements.
creasing number of shortcomings in the electoral and international observers reported a number of Ukraine, Moldova, Belarus and Armenia provide Azerbaijan and Belarus continue to pay the least
process was still registered in all four countries. serious problems with legal provisions and how only indirect public funding and its extent varies respect to this aspect of democracy, although
the elections were conducted. depending on the country. Reporters without Borders highlight certain
Overall, none of the EaP countries meet the improvements in both countries.
standards of democratic elections set by the In- The Moldovan parliament elected a new Presi- As far as electoral competitiveness is concerned, Where association and assembly rights are
dex. Moldova remains far ahead of the other EaP dent in March 2012 after a more than two year Ukraine and Moldova maintained their leading concerned, we see a somewhat different pattern.
countries in organizing and conducting free, fair stalemate. To avoid further obstruction by the positions, although the difference between the Moldova still is in the lead, but it is followed
and competitive elections, followed by Georgia, opposition the law was changed to allow the elec- share of the vote held by the strongest party and closely by Ukraine and Georgia and further away
Ukraine and Armenia. The biggest problems in tion of a president even if only one candidate is the strongest oppositional party increased in the by Armenia. Azerbaijan and Belarus are again far
ensuring a fair electoral competition and the registered. The opposition still boycotted the elec- case of Ukraine. In Georgia and Armenia competi- behind. Ukraine, Azerbaijan and Belarus show de-
transparency of the electoral process were again tion, but the ruling coalition managed to garner tiveness between parties also increased, as the cline compared to last year’s Index, while Arme-
registered in Azerbaijan and Belarus. enough votes for their candidate. This situation difference between the number of seats held by nia shows improvement. No changes are recorded
undermines competitiveness in electing the Presi- the leading party and the main opposition party in the case of Moldova and Georgia.
The 2013 Index recorded progress in Georgia and dent, which resulted in a lower score for Moldova decreased in the 2012 elections. Nevertheless,
Armenia and decline in Ukraine and Moldova in the 2013 Index compared to the previous year. one should note that the ruling party in Armenia
in Elections. Armenia’s progress is explained in 2012 received more seats than in the previous
by better and more equal access to media for all The negative assessment of elections in Belarus in election in 2008, while the second biggest party Human Rights
candidates, mainly during the parliamentary 2013 did not change its already low position com- in terms of number of seats cannot be considered including Equal Opportuni-
elections in May 2012 compared to earlier elec- pared to the previous Index, while in Azerbaijan truly oppositional. ties and Non-Discrimination
tions, better implementation of the legal frame- the elections are not until October 2013.
work and increased electoral competitiveness. This category of the Index looks at civil liberties
Both international and local observers and the Apart from the dynamics highlighted above, most and adoption of international standards in the
national regulatory body registered progress in countries in the region still have serious prob- Media Freedom, Association field of human rights. It also includes the very
balanced and equal media coverage. The positive lems with elections. The quality of the election and Assembly Rights detailed and elaborate subcategory Equal Oppor-
change was due not only to adequate mechanisms process in Georgia, Armenia and Ukraine is com- tunities and Non-Discrimination.
to ensure balanced and equal media coverage, parable and the pattern of deficiencies also does The countries’ scores in this part of the Index
but also due to the political will to provide such not differ much. The key problems that under- mostly rely on the assessments of independent Civil liberties are most severely violated in Be-
guarantees. mine the fairness of elections in these countries international institutions such as Freedom House, larus and most protected in Moldova and Ukraine.
are unclear criteria for the delineation of electoral Bertelsmann Transformation Index and Report- Belarus is notorious for being the only country
In Georgia the implementation of electoral leg- districts, use of administrative resources by the ers without Borders. in Europe that retains the death penalty and
islation slightly improved, as well as the overall ruling parties, selective implementation of the for its lack of international cooperation on the

66 67
 prevention of torture. While Azerbaijan adhered domestic anti-discrimination legislation; and authorities to prohibit discrimination on the affirmative action measures to ensure preven-
to many international instruments on human policy, the latter including the degree of empow- grounds of sexual orientation in its Labour Code. tion of future discrimination and redress for past
rights, its practice of protecting civil liberties is erment of disadvantaged social groups. This request was met by a huge wave of criticism discrimination.
the second worst among the EaP countries. from Ukrainian religious groups, who considered
In the area of ratification of international legal it a threat to so-called traditional values. As a When it comes to enforcement mechanisms all
Ukraine’s record on human rights improved com- instruments Ukraine remains a leader among EaP result MPs from different political parties, includ- EaP countries except Moldova follow the same
pared to the Index 2012 due to the fact that a free states. Moldova and Armenia follow closely, both ing the opposition, are now reluctant to vote for model of the Ombudsman office acting as the
legal aid system was introduced in January 2013, countries progressing at the same pace. Interest- the relevant changes despite pressure from the national equality body. In Ukraine one of the four
although it is still limited to criminal cases and ingly, Azerbaijan signed up to more international EU and domestic civil society. specialised departments within the Ombuds-
receives only limited funding from the state. Ad- legal instruments than Georgia. Belarus is the man office works on non-discrimination, gen-
ditionally, Ukraine established a National Preven- most reluctant EaP country in signing up to inter- The situation as regards protection from discrimi- der and children’s rights. In Georgia the Public
tive Mechanism according to the criteria of the national human rights instruments. It is also the nation on a broader range of grounds remains Defender’s Office deals with non-discrimination
Optional Protocol to the UN Convention against only European country not yet a member of the almost without change across the EaP countries. and simultaneously runs the Tolerance Centre
Torture (OPCAT). It is the Ombudsman who Council of Europe. The EaP states are uniform in the number of and two Civil Councils, one on National Minori-
performs this function. We also noted certain ‘factual’ grounds on which protection against ties and another on Religious Minorities. Belarus,
improvement in the area of non-discrimination, When it comes to anti-discrimination legislation, discrimination is guaranteed. The leaders in this Armenia and Azerbaijan showed no progress in
since Ukraine adopted a relevant framework law. two EaP countries showed progress in this area aspect are Moldova, Ukraine and Georgia, as they enforcing equality. Moldova is the only country in
However, the law fails to comply with EU require- by adopting national framework anti-discrimina- guarantee protection on the largest number of the region that set up a specialised equality body –
ments for such laws and a new amended version tion legislation in 2012 — Moldova and Ukraine. specific grounds, including sexual orientation the Council on Ensuring Equality and Combating
is required. Nevertheless, the adoption of this Moldova’s pioneering law on ensuring equality in Moldova and Georgia. Ukraine and Moldova Discrimination. The Council is composed of five
law should be acknowledged as a step in the right was adopted in May 2012. Ukraine followed in should be praised for keeping the list of protected members from civil society appointed by the par-
direction. October 2012. However, according to EU assess- grounds open in its legislation, since as courts liament and investigates cases of discrimination.
ment Ukraine’s law on anti-discrimination does tend to interpret the law broadly this might mean
Moldova also saw improvement in human rights not meet basic European standards, as it does not de-facto that the law covers discrimination on
during 2012 and early 2013. Although freedom provide sufficient protection to certain categories. unlimited kinds of grounds. Other EaP countries
of expression slightly deteriorated according to Until Ukraine revises its current legislation its have not provided the same scope of protection. Independent Judiciary
Freedom House, Moldova adopted a framework progress cannot be considered sufficient.
anti-discrimination law in May 2012, the first Ukraine and Moldova introduced clear definitions Georgia and Moldova have implemented the most
EaP country to do so despite domestic tensions. All EaP countries have provisions prohibiting of direct and indirect discrimination and harass- rules and procedures guaranteeing an indepen-
The new law was generally praised by the EU. discrimination in their Constitutions. However, a ment. The latter is also defined and prohibited dent and professional judiciary. Not only did both
clear distinction should be made between Georgia in the Armenian legislation. Failure to provide countries show the best results among the EaP
The human rights situation in the other four and Moldova, where the Constitutions contain reasonable accommodation is defined only in states in the current Index, they also improved
EaP countries has not undergone any significant solely an overarching requirement of equal treat- the Moldovan anti-discrimination law, while all their performance as compared to the Index
changes. ment and do not prohibit discrimination per se, other countries fail to regulate this guarantee. 2012. The indicators of an independent judiciary
and other EaP countries where the Constitutions The Moldovan anti-discrimination law is the most improved in Armenia as well, while they deterio-
Observance of the principle of non-discrimi- more explicitly prohibit discrimination and thus comprehensive and covers all major spheres to rated in Ukraine and Azerbaijan. Belarus showed
nation and adoption of measures to guarantee afford a higher level of protection. guaranty better protection. It covers assumed no progress whatsoever.
equality through new legislation remained high discrimination, discrimination by association and
on the bilateral agenda of the EU and EaP coun- All EaP countries guarantee certain protec- multiple forms of discrimination. The Ukrainian The biggest problem in this areas in all EaP
tries. Adoption of comprehensive and effective tion from discrimination within their penal framework law covers these issues only partially, countries is the lack of sufficient guarantees that
legislation is one of the requirements for future laws, labour laws and education laws. Moldova while Armenia prohibits discrimination by asso- the appointment, promotion and dismissal of
visa-free travel. Three major groups of indicators introduced changes into its criminal and con- ciation and Georgia provides for the prohibition judges is guided only by professional standards
were used to assess the state of play and progress traventional codes. It also explicitly prohibited of assumed discrimination in such area as public and is free from political meddling. This problem
of EaP countries in this area: ratification of inter- discrimination on the grounds of sexual orienta- healthcare. All EaP countries, except for Moldova, appears to be most severe in Azerbaijan and
national non-discrimination legal instruments; tion in employment. The EU asked the Ukrainian Azerbaijan and partly Ukraine, fail to establish Belarus where the president has extensive pow-

68 69
 ers over judges. Armenia lags behind the front- influences by senior judges, private interests to ensure the higher quality of service delivery. definition of ‘conflict of interests’ and set mea-
runners, Georgia and Moldova. Ukraine is far or officials from other branches of power. Only Citizens are informed about the standards that sures for its prevention and settlement. The num-
behind as it has serious problems not only with Georgia and Moldova have a judicial self-gov- they can expect and if a certain service does not ber of corruption crimes decreased from 2416
impartial appointment, promotion and dismissal erning body that has a decisive influence on match up to the required level of quality they can in 2011 to 1779 in 2012. In Georgia, the powers
procedures, but also with the weak protection the career paths of judges, with the majority of launch an appeal. and independence of the State Audit Office — the
of judges against harassment, assault and even members elected by judges. Establishing this supreme audit institution — were strengthened.
assassination. element of self-government in the court system is Georgia follows Ukraine. Although overall its
key to depoliticising appointment and promotion public administration still needs major improve- Supreme audit institutions exist in all EaP
When it comes to the institutional independence decisions, but this step requires that incumbent ments, Georgia shows good results in the quality countries. However, the Belarusian State Control
of the judiciary the discrepancies among the EaP judges be of outstanding integrity and not abuse of public service and rates second after Moldova Committee lacks institutional independence
countries are less evident. Georgia, Moldova and their immunity to violate the law. Protecting here. Additionally the practice of public consulta- safeguards and the Azeri Chamber of Accounts
Armenia are the frontrunners, while Ukraine functional immunity while maintaining account- tions in Georgia has slightly improved. heavily depends on the President’s Administra-
and Azerbaijan both lag behind on the same level, ability is a problem that has not been adequately tion. In Georgia, the State Audit Office, although
leaving Belarus even further behind. Where fi- solved in most EaP countries. Azerbaijan lags slightly behind. Nevertheless, a institutionally independent from the executive
nancial independence is concerned, the situation new system, the so called Azerbaijan Service and branch, did not manage to fully exercise its new
appears to be the worst in Azerbaijan and Belarus, Assessment Network (ASAN - asan.gov.az), was task of monitoring political parties and campaign
where the judiciary is financed by the govern- established. It provides administrative services financing in the run up to parliamentary elec-
ment or only through informal mechanisms, put- Quality of Public to the population and to a certain degree reduces tions without bias.
ting it under the direct control of the president. Administration the possibilities for petty corruption.
There are legislative guarantees ensuring protec-
In all EaP countries, apart from Belarus and The quality of public administration is an im- Belarus has the worst quality of public adminis- tion against arbitrary dismissal for the heads of
Azerbaijan, the judiciary retains strong powers portant prerequisite to ensure effective reform tration among the EaP countries. However, it is the audit agencies in all countries of the Eastern
without significant changes compared to the in any country. The EaP Index considers such worth noting that a new law adopted in 2012 put Partnership, except for Belarus, where the head
Index 2012. aspects as policy formulation and coordination in place a uniform process for the promotion of of the State Control Committee is appointed and
and impartial and professional civil service, the civil servants and provides civil servants with ac- dismissed directly by the President.
When it comes to accountability and transparen- latter including legal, institutional and procedural cess to their personal files.
cy of the judiciary, Moldova shows improvement, aspects and the management of public service A regulatory framework governing transparency
while Armenia and Azerbaijan show decline quality. The current Index shows an absence of and parliamentary scrutiny of the audits carried
compared to the Index 2012. Georgia retained its any significant developments in this field com- out by the audit agencies is in place in Armenia,
leading position, while Ukraine stayed some- pared to last year. Fighting Corruption Georgia, Moldova and Ukraine. However, find-
where between the frontrunners (Georgia, Mol- ings of the audit agencies do not receive sufficient
dova and Armenia) and Belarus and Azerbaijan at Moldova has the best quality of public adminis- The current Index shows no significant changes in attention in any of the Eastern Partnership
the other end of the scale. tration in the region. The country also improved the field of fighting corruption in most EaP coun- countries.
indicators in policy formulation, coordination tries compared to the Index 2012. Two countries,
Internal rules, such as a code of ethics for the ju- and assessment, as well as the state of the civil Georgia and Belarus, improved their indicators Public procurement remains the area most prone
diciary system, are partially provided in Ukraine service. Armenia follows second. A new law on during the last year. Overall Georgia and Moldova to corruption. Although legislation requires
and Moldova. In Ukraine the Congress of Judges public service entered into force in Armenia last are the leaders in fighting corruption. Armenia competitive bidding in all cases of major procure-
adopted a fully revised version of the Code of year. It launched the formation of commissions comes third, followed by Ukraine. Belarus and ments, vaguely formulated exceptions create
Judicial Ethics in February 2013. However, its on the ethics of civil servants and senior officials. Azerbaijan switched positions. Currently Azerbai- a risk of arbitrary interpretation of the law in
provisions duplicate the existing legislation in However, the activities of these commissions are jan has the worst indicators on fighting corrup- Ukraine and Georgia, while in Azerbaijan and
many respects, while at the same time fail to not fully unbiased. tion in the region. Armenia requirements of the legislation are not
provide answers to a lot of practical questions. Despite overall low scores, Belarus made progress often respected in practice. Public procurement
Judicial ethics training exists in Ukraine; however, Ukraine comes third in this category. A new in preventing corruption. In April 2012 the law regulations and results of major public procure-
its content is not practical in nature. responsibility has been added to the portfolio of on fighting corruption was amended to include ment bids are nevertheless easily accessible to the
the Minister of the Cabinet of Ministers to en- a new definition of ‘state official’ and a new list general public in all six countries of the Eastern
None of the six countries ensure that judicial sure the effective functioning of the civil service. of persons required to submit declarations of Partnership.
deliberation is sufficiently protected from undue Moreover, a novelty was introduced, which helps income and property. The law introduced a new

70 71
 Accountability over the ‘power ministries’. Belarus is the only Generally, parliamentarians in Eastern Partner- tionality for law enforcers while applying coercive
country where the president de-facto decides ship countries enjoy immunity from criminal measures, thus considerably strengthening its
A properly functioning system of checks and who can become a member of the legislature prosecution. However, in recent years there have position in this category of the Index. In contrast
balances necessarily implies the accountability (although, according to the Constitution, he can been cases of allegedly politically motivated with Moldova, relevant legislation in Belarus and
of the executive to the legislative branch, where only appoint 8 members of the upper chamber) criminal prosecutions against individual parlia- Azerbaijan lacks the necessary precision on the
those elected by the public can control and hold and the budget of the parliament is under the mentarians in Armenia and Azerbaijan. use of lethal force and fails to secure a system
representatives of the government accountable. control of the President’s administration. of adequate and effective safeguards against
However, for a legislator to effectively exercise arbitrariness. Internal control and enforcement
its control over the executive branch, adequate Legislators in Armenia, Georgia, Moldova and mechanisms to deal with abuse of power by
constitutional and institutional mechanisms have Ukraine have the power to summon govern- Democratic Control security and law enforcement agencies exist in all
to be in place. If one recognises that the level of ment officials and have regular hearings with over Security and Law six countries. However, the effectiveness of such
accountability might vary depending on the con- representatives of the executive branch. While Enforcement Institutions mechanisms is questionable everywhere except
stitutional model of a particular country, drawing the parliaments of these countries have constitu- for in Moldova.
parallels or finding differences among the EaP tional powers to conduct independent investiga- Irrespective of the seriousness of the alleged
countries might not reflect the complexity of tions in case of abuse of power by government threat, security concerns cannot override the Theoretically, parliaments in all EaP countries
the reality. Notwithstanding, major trends could representatives, how these commissions operate rule of law in a democratic state. Accordingly, the have the possibility to exercise control over
nevertheless be identified. is not clear in Ukraine and Armenia. In Georgia, extent to which legislative bodies, national hu- security forces. What form this control takes
creation of a temporary investigative commis- man rights institutions and civil society have the varies from country to country. The legislative
Moldova, being a parliamentary republic, is the sion depends on the will of the majority in the possibility to exercise control over law enforce- bodies in Ukraine, Georgia, Belarus and Azerbai-
frontrunner among the six Eastern Partnership parliament. Legislators in Belarus and Azerbaijan ment and security services is a crucial indicator jan are either reluctant or lack the possibility to
countries, followed by Ukraine, Armenia and completely lack these powers. of the state of democracy. In order to understand use this leverage effectively. For instance, the law
Georgia. Moldova still remains the only country whether the six Eastern Partnership countries enforcement ministries usually do not report to
in the Eastern Partnership that allocates posi- In terms of parliamentary control over the satisfy this criteria, the Index looks at the the parliament in Belarus and Azerbaijan. At the
tions as parliamentary committee chairs to the agencies of coercion, only in Moldova does the internal regulations within the security and law same time in all six countries the speaker of the
opposition allowing the minority to influence the parliament effectively exercise this function. In enforcement bodies, the level of control exercised parliament is a member of the National Secu-
political agenda in the parliament. Ukraine and Georgia legislators can exert general by the parliament and national human rights rity Council. However, only in Moldova are the
control over these agencies through parliamen- institutions in cases of abuse of power by police, decisions of the Council subject to parliamentary
Compared with last year’s Index Georgia and tary interpellation, but it is not in their authority army and security personnel, and transparency scrutiny.
Armenia improved their scores. This positive to dismiss the ministers of defence and interior. and openness of those institutions.
dynamic in strengthening the role of legislative The control exercised by the Ombudsman’s Office
bodies in Georgia and Armenia can be attributed The powers of the legislative branch in the forma- Similarly to the Index 2012, Moldova shows the over security and law enforcement bodies is con-
to the results of the parliamentary elections tion of the government are limited in most EaP best system of democratic control over its secu- siderably weak in Azerbaijan and there is no such
conducted in these countries during the report- countries. Only in Georgia and Moldova is a vote rity institutions, followed by Ukraine. Georgia human rights institution in Belarus. Over the last
ing period. The election in Georgia resulted in a of confidence by the parliament required for the and Armenia lag somewhat behind, while Belarus three years there have been cases of persecution
considerably changed seat differential between appointment of the cabinet of ministers. Despite and Azerbaijan have the worst scores. Ukraine, and intimidation of journalists and representa-
the governing coalition and the main opposition the limited functions of the legislative branch Georgia and especially Moldova improved their tives of civil society organisations in Azerbaijan,
party giving more space for alterative opinions in in Azerbaijan it is the only country where the performance, while the situation in the other Armenia, Belarus and Georgia. Lack of transpar-
the parliament. Compared to data from the previ- president does not have power to dissolve the three EaP countries almost did not change. ency in the law enforcement and security bodies
ous parliament, the number of bills submitted by parliament. remains a problem in all EaP counties. However,
opposition deputies has increased in Armenia. Excessive use of force by police and security per- the situation in Georgia improved since last year,
Legislative bodies in all six countries have a for- sonnel while handling demonstrations has been whereby meetings with civil society organisations
Belarus and Azerbaijan score the lowest as their mal mechanism to override the presidential veto a concern in almost all EaP countries during the and the Ministry of Justice became institution-
parliaments have limited power or only formally – a power not frequently exercised by legislators last three years, except for Moldova where the alised.
exercise oversight over the executive branch. The in practice. However, during the reporting period, last case of police violence in crowd control was
legislators of the two countries do not play a role the parliament of Georgia successfully overrode registered in April 2009. Moldova also adopted a
in the appointment of the cabinet of ministers, the presidential veto a number of times. new law clearly defining the principle of propor-
have limited law-making power and lack control

72 73
 Economic EU. Armenia is the least significant trade partner The actual level of tariff protection faced by the came a member of the WTO, and the number of
Cooperation: accounting for only 1% of total EaP-EU trade. EaP countries in the EU is determined by the applied measures gradually reduced in 2011-2012.
Trade in Goods, Georgia and Moldova follow closely behind with Import Tariff Schedule of the EU, eligibility to
Services and FDI 3% and 4% respectively. existing preferential schemes (GSP, GSP+, ATPs) Measures applied in Ukraine towards goods
and bilateral agreements, as well as the commod- produced in the EU are quite recent. Two anti-
As the largest regional market, the EU has been Apart from trade links, the EaP countries rely ity structure of each country. dumping measures were enacted in 2009 and
an important trading partner for all EaP coun- heavily on EU investments. The share of foreign 2012 and two safeguard measures in 2011
tries. In 2012 the EU-27 remained the leading direct investments (FDI) from the EU remains Among the EaP countries Belarus exporters face and 2013. In particular, in April 2013 Ukraine
trading partner in both the export and import between 30% to 80% of the total inward stock of the highest level of tariff protection in the EU, introduced safeguard measures on the import
of goods for four EaP countries: Armenia, Azer- FDI in the EaP countries. This share is the largest followed by Ukraine and Moldova’s exporters face of motor cars. The decision has caused serious
baijan, Georgia and Moldova. For Belarus and for Ukraine and Moldova and the lowest for the lowest level of tariff protection. EU exporters concerns among WTO members, in particular the
Ukraine, the EU remained the second largest Belarus. have to deal with the highest tariffs in Belarus EU, regarding its compatibility with the provi-
trading partner after the Russian Federation. (reciprocity principle) and in Azerbaijan. The sions of the WTO Safeguards Agreement. The
Currently, trade regimes between EaP countries lowest import tariffs on EU products are applied list of raised issues includes whether there was
7 On average, goods turnover with the EU con- and the EU are regulated by several frameworks, in Georgia. Both the EU and EaP countries tend adequate consultation opportunities before the
The GSP is an autono- stitutes around one third of total EaP turnover. namely bilateral Partnership and Cooperation to have higher average tariffs on agricultural adoption of the decision, causality issues and is-
mous trade arrangement
through which the EU Countries’ figures vary between 27% and 45%, Agreements (for Belarus a Trade and Economic products than on industrial goods. sues relating to the maintenance of substantially
provides non-reciprocal with the highest EU goods trade observed in Mol- and Commercial Cooperation Agreement), WTO equivalent levels of concession. The Government
preferential access to the
EU market. The system
dova and Azerbaijan—the latter due to energy rules and practices (except for Belarus and Azer- Three EaP countries, Azerbaijan, Belarus and of Ukraine has expressed its readiness to con-
allows exporters from exports— and the lowest in Belarus and Georgia. baijan) and unilateral preferences offered by the Ukraine, apply export tariffs that also affect tinue consultations with the WTO.
developing countries to EU. exports to the EU. The list of products subject to
pay lower duties on some
or all of what they sell Three EaP countries, namely Armenia, Moldova export tariffs includes metals and scrap metal
to the EU. It envisages and Belarus, increased their exports to the EU in The EU and EaP countries accord each other the from Azerbaijan and Ukraine, mineral products
duty-free access for non-
sensitive products and
nominal terms, while exports of three other EaP ‘most favoured’ treatment in the trade of goods. from Belarus and Ukraine, and selected other Market Economy
a reduction in import countries dropped. All EaP countries increased Moreover, most EaP countries enjoy additional sensitive raw products like oil seeds and skins
duties for sensitive the import of goods from the EU. preferences in access to the EU market, being from Ukraine and wood from Belarus. The EU In assessing domestic economic performance and
products.
www.ec.europa.eu eligible either for the Generalised System of Pref- does not apply export tariffs. The establishment market economy status we focused on the qual-
The importance of the EU in services trade is erences (GSP)7, the GSP+8 or even Autonomous of the DFCTA between Ukraine and the EU will ity of the business climate in the countries and
less homogeneous across EaP countries. Services Trade Preferences (ATPs). These preferences are result in the eventual elimination of Ukraine’s their transition progress. The analysis is based on
trade turnover with the EU is estimated between non-reciprocal and provided by the EU to devel- export tariffs in trade with the EU, although the widely used indicators for international economic
13% and 22% of total service trade of each coun- oping countries with the primary aim of reducing agreement envisages long transition periods and comparison rather than country size, specific
try for the four smaller EaP countries (Armenia, poverty and promoting sustainable development temporary trade remedy measures allowing for factors and short-term shocks. In particular, we
Azerbaijan, Georgia and Moldova). The respective and good governance in these countries. the existing level of protection to be kept during used indices produced by the World Bank (Doing
8 shares for the two larger countries — Belarus and the transition period. Business), EBRD (Transition Reports), World Eco-
The GSP+ constitutes
Ukraine — constitute 51% and 36%. All EaP countries except for Belarus are eligible nomic Forum and the Heritage Foundation.
additional preferences
available to vulnerable for the GSP. Preferences to Belarus were tem- Trade defence measures have been rarely used
developing countries as While the EU occupies a leading position in porarily withdrawn in June 2007 in response in trade between the EU and the EaP countries. A number of conclusions can be drawn from the
an incentive for them
to ratify and effectively exports and imports in the EaP countries, these to systematic and serious violations of the core In 2012, the EU did not launch any new anti- analysis. According to the World Bank Doing
implement a set of key countries represent only a small percent in the principles of the International Labour Organisa- dumping or safeguard investigations that concern Business (DB) 2013, Georgia has preserved its
international conven-
EU overall trade. Altogether, the six countries tion. Three EaP countries (Armenia, Azerbaijan, products from the EaP countries. Among the leading position in the category ease of doing
tions. These represent
widely recognised of the region account for around only 2% of EU Georgia) benefit from preferences provided by EaP countries in 2012 only Belarus launched new business among the EaP countries. Armenia
international standards goods trade and a marginal 0.4% of EU services the GSP+. Moldova has been entitled to the ATPs investigations that concern EU products. holds the second place. Despite significant prog-
in the fields of core hu-
man rights and labour trade. As a comparison, the Southern neighbours above the level of GSP+ since March 2008. The ress in starting-up businesses and paying taxes,
standards, sustainable represent 5% of the EU’s trade and Russia 10 %. ATPs have provided unlimited and duty free Ukraine accounts for the majority of currently Ukraine still has the least attractive business
development and good
Ukraine has been the EU’s largest trading partner access to the EU market for all products originat- registered cases. In the EU, measures applied climate in the group.
governance.
among the EaP countries. It accounts for 52% ing in Moldova, except for certain agricultural towards Ukraine’s products were adopted more
of overall trade between the EaP region and the products for which quotas are applied. than five years ago, that is, before Ukraine be-

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 In general, five out of the six EaP countries im- weak in all the EaP countries and corruption climate is the worst among the EaP countries. ing since Belarus is a member of the Customs
proved their performance compared to the results constitutes a serious challenge for the economic However, once the business climate improves, it Union of Belarus, the Russian Federation and
in the DB 2012. A reduction was registered only development of the region. further boosts investments and trade between Kazakhstan and therefore cannot have a free
in Azerbaijan. Armenia and Ukraine were the the parties. trade area with the EU independently from the
front-runners in terms of positive changes. The EBRD country transition indicators show Customs Union. This might mean that trade with
that five out of six EaP countries, with Belarus the EU is still attractive for Belarus and a lim-
Four of the six EaP countries — Armenia, Azer- remaining the exception, have achieved com- ited level of regulatory adjustment is needed in
baijan, Belarus and Georgia — ensure that busi- prehensive price and trade liberalisation and Towards DCFTA order to increase trade flows. However, in 2012
nesses can be established quickly, both in terms completed the privatisation of small companies both countries slowed down in meeting DCFTA
of time and monetary costs, thus allowing free with tradable ownership rights. The progress in Deep and Comprehensive Free Trade Agreement requirements.
entry to the market. Ukraine has also achieved large scale privatisation is not uniform across (DCFTA) along with the prospect of visa-free
significant progress in freeing market entrance the EaP countries. The most significant prog- travel are the two biggest incentives that the EU Liberalisation of trade policy is one of the key
thanks to reductions in the time, cost and num- ress in large-scale privatisation and corporate offers to its partner countries within the Eastern DCFTA requirements. Moldova, Ukraine and
ber of associated procedures required. Neverthe- governance is registered in Georgia and Armenia, Partnership Initiative. DCFTA is the most com- Armenia pursue the most liberal trade policies.
less, the country is still lagging far behind the while Azerbaijan and Belarus preserved state prehensive free trade arrangement that the EU Georgia made significant progress in 2012 and
group average, especially when it comes to the ownership for a considerable part of the economy has so far offered to any third country, which will is catching up with the frontrunners. Azerbaijan
duration of registration procedures. and the process of large privatisation is just at have profound implications for domestic reforms has the most protectionist trade policy.
the beginning. All EaP countries feature little in EaP countries.
At the same time, all countries have set up ob- progress in governance and enterprise restructur- Ukraine’s sanitary and phito-sanitary standards
stacles for resolving insolvency, thus preventing ing and in competition policy reform. According The DCFTA part of the Index looks at all the are the most compatible from the region with
free market exit, which is another basic principle to the World Economic Forum the effectiveness sectors that are relevant to the free trade area DCFTA requirements. It is the only country that
of the market economy. Armenia and Belarus are of promotion of competition policy in the EaP and that are included as chapters in the Associa- made progress in 2012 leaving the other coun-
the leaders in ease of resolving insolvency, while countries is quite moderate. tion Agreements (AA) between the EU and EaP tries far behind.
Ukraine has the worst ranking due to high associ- countries. The AA with Ukraine is now technically
ated costs and low recovery rate. The situation There is very little change in the EBRD sec- ready for signing and the text is published. At the All six countries score rather highly when it
considerably deteriorated in two markets — Be- tor transition indicators of the EaP countries same time the EU concluded negotiations with comes to customs and trade facilitation provi-
larus and Georgia. compared to last year’s Index. All EaP countries Moldova, Georgia and Armenia. The EU cannot sions and there is no change compared to last
have room for improvement in market structure start DCFTA negotiations with Azerbaijan before year.
Paying taxes remained quite cumbersome in all and market-supporting institutions and poli- the country’s accession to WTO, while DCFTA is
EaP countries, except for Georgia that features a cies in the majority of sectors. Armenia, Georgia, not at the moment in sight for Belarus. Regulations for services and establishments are
low tax rate and a system of only five payments Ukraine and Moldova have a relatively more also rather developed in all six countries with Be-
per year. Four out of six EaP countries demon- developed market structure, while Belarus and The six EaP countries can be divided into three larus lagging behind. Armenia made the biggest
strated significant progress in the simplification Azerbaijan are lagging behind. Across sectors, the pairs according to their DCFT performance. improvement, while Azerbaijan’s performance
of tax payments, while the situation in Azerbai- corporate sector and selected sectors in infra- Georgia and Moldova are the best performers, as worsened.
jan improved only slightly and Belarus regressed. structure have been developed the most. At the they demonstrate the highest level of compli-
Ukraine is still the worst performer in the group. same time, further regulatory efforts should be ance with DCFTA requirements and both made Capital provisions are the most developed in
devoted to the development of the financial and progress compared to last year. This is despite the Moldova, Georgia and Armenia. Ukraine demon-
The EaP countries have a moderate standing in energy sectors. fact that both countries started DCFTA negotia- strates a mixed pattern — halfway between good
contract enforcement, with the exception of Ar- tions much later than Ukraine and concluded the conditions for the free movement of capital and
menia whose performance worsened in compari- There seems to be no direct link between trade negotiations faster. Ukraine and Armenia are on too much state regulation. For instance, there are
son with the DB 2012 as the country increased turnover between the EU and each of the EaP the same level, but below the frontrunners. The restrictions on the acquisition of agricultural land
delays. Belarus holds the leading position in ease countries, on the one hand, and business climate, difference is that Ukraine’s performance deterio- by foreigners and administrative procedures that
of contract enforcement according to DB 2013 on the other. For instance, Ukraine has the most rated, while that of Armenia improved. Azerbai- limit the free movement of capital. In Belarus
with the lowest number of procedures. According intensive trade with the EU and is the largest jan and Belarus lag behind and find themselves and Azerbaijan capital market is too heavily con-
to Heritage Foundation assessments, enforce- recipient of FDI from the EU, partly determined almost on the same level. The fact that Belarus trolled by the state.
ment of property rights has remained quite by the size of the country, and yet its business and Azerbaijan are on the same level is interest-

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 Four countries — Moldova, Armenia, Georgia The catalyst for efficient cooperation in FSJ dards and showed progress in 2012. Belarus and are observed in Georgia, where there is no compe-
and Azerbaijan – fully meet EU intellectual prop- matters is the EU’s promise to all EaP countries Azerbaijan are far from receiving an APVL, since, tent civilian authority dealing with migration
erty rights requirements. Ukraine and Belarus lag of at some point visa-free travel to the EU under unlike the other four EaP countries, they have and Azerbaijan which does not have a framework
behind as countries that offer low protection in certain conditions. This visa policy became one not even concluded visa facilitation agreements document on migration. Compared to previous
the United States Trade Representative (USTR) of the most effective foreign policy tools used by with the EU. The latter facilitates the process of years, the EaP countries progressed in most areas
watch list. the EU to encourage reforms in the EaP countries. issuing Schengen visas to certain categories of related to migration, integrated border manage-
The prospect of visa-free travel is appealing to EaP citizens by EU member states’ consulates. ment and asylum. Belarus and Armenia still score
Georgia is the only country in the region that both the political elite and ordinary citizens. For One particular impediment to greater progress in low on border management both in Linkage and
meets EU geographical indications requirements. most EaP countries’ governing elites this pros- Azerbaijan and Belarus is the worsening human Approximation.
Moldova’s performance is also relatively high, pect became a more powerful incentive than that rights situation and limited cooperation with the
while the other four countries lag far behind at of full EU membership, as politicians are willing EU in some of the FSJ areas. Belarus continues Public security and order represents one of the
approximately the same level. to deliver results while still in office in order to in- to register the lowest results among the EaP most difficult areas to reform. Countries show
crease their chances to hold on to power. Whilst countries. One has to note, though, that Belarus good progress in terms of adoption of legisla-
Competition and state aid requirements are fully the prospect of membership remains a long way receives the highest number of both EU and tion, which is a part of Approximation, while
met only in Georgia. The gap among the coun- off and impacts minimally on ordinary people in Schengen visas per capita among the EaP coun- the Linkage dimension scores remain low for
tries in this area is large. Moldova comes second, the short term, visa-free travel would benefit all tries. This probably has to do with the informal most countries. The implementation of recently
followed by Ukraine and Armenia. Belarus and citizens, thus increasing support for the incum- policy pursued by EU member states’ consulates adopted laws remains a challenge. Only Georgia
Azerbaijan are far from meeting EU requirements bent government. of facilitating greater mobility for Belarus citizens shows a high level of controlling corruption in
in this area. Moldova and Armenia both made as a counterbalance against the authoritarian our Index, based on indicators from Transparency
significant progress compared to last year. The EaP Index measures the level of cooperation regime. International and the World Bank, leaving other
of each EaP country with the EU on FSJ mat- countries behind with Ukraine and Azerbaijan
All these differences no doubt reflect the level of ters and implementation of domestic reforms Four countries – Ukraine, Moldova, Georgia and showing the worst results.
political will in each country to meet EU require- required by the EU, mostly included in the Action Armenia – have visa facilitation and readmission
ments. However, one should also take the differ- Plans on Visa Liberalisation (APVL). agreements with the EU, while Azerbaijan is ex- The reforms in the area of external relations and
ences in structures of domestic economies into pected to sign them in November 2013. Moldova human rights are difficult to implement for most
account. The large production sector in Ukraine The 2013 Index confirms Moldova’s leading posi- and Ukraine signed the second generation of visa of the countries. Moldova was the only country
naturally advocates for more protectionist tion in implementing required reforms. Ukraine facilitation agreements, which further eases visa to adopt an anti-discrimination law in line with
measures and the costs of adjustment in Ukraine is lagging behind Moldova and the gap between requirements and broadens the list of categories basic standards of the EU in 2012. The rest of the
might be higher than in Georgia, Moldova and Chisinau and Kyiv is increasing both institution- of citizens eligible for visa facilitation. countries have no specific or general legislation
Armenia, at least from the perspective of strong ally and technically. Moldova moved to the sec- in place and as such no effective mechanism for
interest groups. ond phase of APVL in 2012, which is largely well All countries of the region are relatively advanced protection against discrimination, in particular
implemented, while Ukraine is still in the first in ensuring document security, except for the for sexual minorities.
phase. Kyiv still needs to adopt and implement fact that not all states issue biometric passports.
a comprehensive anti-discrimination law in line Ukraine has a legal framework for biometric The Linkage and Approximation dimensions of
Freedom, Security with European standards and establish an inde- passports, but lacks the necessary secondary FSJ show no major discrepancies. In most cases
and Justice pendent anti-corruption agency. Georgia is slowly legislation, which prevents issuance of the new developed links with the EU in this area trans-
catching up with Moldova and technically has documents. Belarus started to issue biometric late into a better domestic reform process. Yet,
Freedom, Security and Justice (FSJ) remains a almost reached Ukraine’s level. The country was passports as a pilot project. However, it is not one could highlight that Georgia, Armenia and
key area of cooperation between the EU and EaP handed an APVL in February 2013 and started clear to what extent these are in accordance with Azerbaijan seem to exert more efforts where
countries. The EU pursues the creation of an area implementing many of the prescribed reforms the International Civil Aviation Organization domestic reforms are concerned than Ukraine.
of security and prosperity at its Eastern border, even prior to this event, especially on combating standards. While the remaining countries issue For instance, Georgia shows almost the same
while the EaP governments declare their commit- corruption. biometric passports, not all of them have plans level of approximation as Ukraine, although its
ment to fighting against corruption, organised in place to phase-out the old travel documents. links with the EU are far less developed. Armenia
crime, illegal migration, human trafficking and Armenia has not yet received an APVL. Despite and Azerbaijan, although disadvantaged in terms
promoting efficient law-enforcement and human this fact, Armenia started a series of reforms Most EaP countries have good standards in the of links with the EU, are also catching up with
rights. aimed at aligning its legislation with EU stan- area of irregular migration. Some shortcomings domestic reforms.

78 79
 Thus, although most countries adopted impor- Georgia, who applied for membership to the Some improvement in transport policies and In previous years Ukraine was the leader in the
tant new legislation in 2012, the hard work Energy Community, is still way behind Ukraine infrastructure in the EaP countries was registered field of transport, but recently Moldova and
remains to be done in 2013 and 2014 when most and Moldova who are already full members. Yet, mainly due to initiatives launched in the late the Caucasus countries, in particular Georgia,
of the legislation will have to be implemented Georgia offers free access to infrastructure and 2000s or to substantial domestic support. caught up. Armenia, Azerbaijan and Georgia have
in a comprehensive and sustainable manner. To has better energy efficiency indicators than any increased the quality of transport services and
make this happen the authorities and societies EaP country. At the same time Kyiv and Chisinau The Linkage dimension reflects the lack of rela- ensured greater participation of private compa-
of the EaP countries will have to put in signifi- have the highest level of formal commitments tively recent integration initiatives in the field of nies in their provision. Meanwhile, Ukraine and
cant efforts and resources. This will pave the way but show moderate progress in implementation transport. For instance, in the aviation sector one Belarus having a closer geographical position to
for visa-free travel to the EU, but first of all to of the acquis communautaire. The Ukrainian of the EU’s priorities is the enlargement of the the EU lag far behind in transport development.
a modern justice and security system based on energy market is being liberalised in both gas and Common Aviation Area (CAA). Georgia and Mol- Namely, Belarus has not adjusted to the EU’s
European standards that could offer more rights electricity sectors, while the Moldovan market is dova already signed agreements on CAA, but their standards and policies despite having the largest
and opportunities to citizens. more open and non-discriminatory. Both coun- ratification on the side of the EU is pending. The share of land connections to the EU among the
tries developed renewable energy national targets progress of Azerbaijan and particularly Ukraine, EaP countries.
and greenhouse emissions reduction mechanisms. who started talks in 2007, is considerably slower.
However, none of the EaP countries started to Belarus and Armenia have not started negotia-
Energy implement the far-reaching reforms within the tions on joining the CAA, although Armenia
Third Energy Package. started approximation with the EU aviation Environment
Trade-related and other economic factors matter safety legislation. Some progress was achieved and Sustainable
more for EaP countries’ Linkage with the EU in In comparison to the period assessed in the previ- in strengthening administrative capacities of Development
the field of energy than participation in multilat- ous Index energy consumption of EaP countries transport bodies mainly due to joint projects with
eral dialogue mechanisms initiated or supported changed slightly. Belarus, Moldova and Georgia the EU launched some years ago. In particular, In this Index all countries except Moldova, who
by the EU. In this regard Armenia is a very minor were most successful in reducing energy inten- independent or quasi-independent transport was the best performer in the previous Index,
player with little trade between the EU and Arme- sity and greenhous gas (GHG) emissions, while incident investigating bodies were finally created improved their scores. Ukraine achieved the big-
nia. Azerbaijan, Georgia and Belarus are mainly Ukraine and Armenia showed almost no progress. to correspond to the EU’s safety requirements. gest increase. The gap between the best and worst
exporting fuels and minerals to the EU. Ukraine environmental performers tended to reduce, al-
and Moldova are increasingly importing energy In order to produce sustainable results in reform- The Approximation dimension illustrates a though Moldova still remains the leader. Belarus
from the EU. The engagement with Azerbaijan is ing the energy sector the EU should increase its somewhat different trend. Mostly driven by the is in second place. Armenia took over the third
set to grow as it will become the main supplier in technical and expert support. Regulatory approxi- scarcity of financial means to invest in transport position from Georgia. Ukraine and Azerbaijan
the future Southern Gas Corridor, while Georgia mation should be followed by effective enforce- infrastructure, EaP countries initiated reforms have the lowest results, due to high pressure on
and Ukraine will remain key transit countries. ment of the new rules. Approximation should also in the transport sector. These have been aimed at the environment and complicated environmental
address the structure of the energy markets by reducing the state’s power in transportation and conditions. Georgia is in fourth position being
The EaP countries are slowly yet confidently optimising the energy mix and developing infra- at attracting private investments. Following this very close to Ukraine.
transforming their energy sectors in accordance structure, including cross-border connections. model, Ukraine adopted relatively liberal legisla-
with EU regulations. The success of such change Only such a holistic approach can provide better tion regulating ports and railway freight. Moldo- The Index assessment here is composed of two
largely depends on the systematic nature of energy security for both the EU and partner va also started reforming its railways and allowed major parts: 1) environment, climate change and
approach of the country. For instance, Belarus countries. concessions of airports. Armenia and Georgia sustainable development policy; and 2) resource
distances itself from any cooperation on energy have liberalised almost all transport markets. efficiency, pressure on and state of the environ-
and demonstrates a poor performance in energy ment.
reforms. Both Azerbaijan and Armenia made The EU’s relatively decelerating involvement
significant steps in gas and electricity market Transport in the field of transport has resulted in lack of In the first part Moldova has the highest result
restructuring. Azerbaijan signed a Memorandum progress in safety aspects and in ongoing EaP mainly for starting preparation of a national en-
of Understanding on energy sector cooperation Transport plays an important role in the facilita- countries’ reluctance to establish independent vironmental policy and a Shared Environmental
with the EU and Armenia gained observer status tion of economic cooperation, trade and people- transport regulatory bodies. In particular, the Information System Action Plan. Ukraine follows
in the Energy Community. Armenia and partly to-people contacts. However, the development number of road accidents remains substantial second and Armenia third. Georgia and Belarus
Moldova implemented ownership unbundling of transport infrastructure lacked appropriate and their rate did not change across the countries come next. Azerbaijan closes the ‘policy’ chart
rules. Armenia also established an independent attention from the EU in recent years most prob- compared to the Index 2012. Also, the Index with a significant gap.
regulator, similar to Georgia and Moldova. ably due to the financial troubles of the euro zone. 2013 shows no considerable improvements in
transport regulation.

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 Although Moldova still leads on policy adoption, Azerbaijan as well, since a new draft law on EIA and effective. There is some progress in the Armenia’s WEI is comparable with the EU-27 av-
no considerable progress in environmental policy has been recently submitted for adoption and a introduction of the EU-comparable mechanism erage, Azerbaijan’s is twice as high and growing. A
integration (EPI) has been achieved. Nevertheless, separate environmental policy development is for prevention of illegal and unofficial fishery. A slight reduction in water pollution is observed in
Moldova has never been recognised as non-com- envisaged. corresponding law was adopted in Moldova in Ukraine, Armenia and Moldova, but it has grown
pliant under the main conventions with compli- 2006, while Ukraine adopted several relevant nor- significantly in Azerbaijan and Georgia. Ukraine
ance mechanisms. Ukraine is in second position In terms of sustainable development (SD) policy, mative acts in 2012. A slightly better situation is is the leader in SO2 pollution, showing approxi-
in terms of policy development and implementa- Belarus is implementing a National Strategy for observed in control on legal trade in forestry, in mately three times higher emission than the EU-
tion. It has been implementing the new environ- sustainable development for the period to 2020, particular in Armenia, Belarus and Ukraine. 27, although the amount slightly reduced in 2012.
mental law on the State Environmental Strategy which was adopted in 2004. Armenia has recently Belarus has overtaken Ukraine in leading on NOx
and the governmental National Environmental adopted the National Programme on Sustainable Climate change policies are under different stages pollution in EaP countries in 2012.
Action Plan (NEAP), where the EPI is a core prin- Development, elaborated with active public par- of preparation. The Low Emissions Development
ciple, but last year’s attempts to adopt EPI instru- ticipation. The country has a functioning Nation- Strategy of Moldova, after public consultation in At the same time, the level of individual con-
ments concerning Environmental Impact Assess- al Council on Sustainable Development (NCSD) 2012, was sent to the government for approval sumption in all EaP countries still has not
ment (EIA) and public participation in EIA failed. under the President, where NGOs take part. The in March 2013. Climate mitigation policy exists reached the EU-27 levels, which manifests in
The 2011 decisions on Ukraine’s non-compliance NCSD in Moldova was established with NGO par- in all six EaP countries, but is varyingly devel- lower municipal waste production per capita by
with the Aarhus and Espoo UN ECE Conventions ticipation and elements of SD strategy are being oped. Climate adaptation is a relatively new topic weight. The domestic waste generation per capita
have not been lifted. After implementing the implemented in sectoral programmes such as on and policy instruments for its implementation seems to not be changing or even to have reduced
recommendation of the Compliance Committee sustainable agriculture. For the period 2008-2015 are generally at the phase of preparation and/ in kilos. However, there is a tendency that the
of the Kyoto Protocol, the suspension imposed Azerbaijan has two SD programmes: the State or adoption. There are difficulties in getting the waste structure is changing, therefore the volume
on Ukraine in 2011 under the Kyoto Protocol of Programme for Sustainable Development of the Draft National Action Plans on Climate Change is growing. The share of plastics is increasing and
the United Nations Framework Convention on Regions and the Sustainable Development and Adaptation agreed tosince there is a lack of inter- the overall recycling share dropped in Ukraine.
Climate Change (UNFCCC) was lifted in March Poverty Elimination Programme. No SD policies agency coordination on environmental matters Recycling has slightly improved in Armenia,
2012. have been adopted so far in Moldova, Georgia that would help find the right balance between grown in Moldova, reached in Azerbaijan 15%
and Ukraine. The latter has, however, SD prin- economic considerations and climate friendly and grew in Belarus up to 16%, compared to a
Armenia ranks third and remains the only coun- ciples and elements incorporated into its State economic activity. more than 22% average in the EU-27.
try among the six EaP states that has ratified Environmental Strategy. All countries, except
the Protocol on Strategic Environmental Assess- partially Armenia, lack effective SD institutional The Index rating system and analysis of 12 In terms of the intensity of countries’ activities to
ment to the Espoo Convention, one of the main provisions at the national level, although prepara- indicators on resource efficiency, pressure on and realise their emission reduction potential, which
EPI instruments. Only three countries (Ukraine, tions for the Rio+20 Conference on Sustainable state of environment demonstrate that Belarus was considered as a target, Ukraine, Belarus and
Georgia and Armenia) have separate environ- Development revitalised some SD-related activi- remains the country with the best environmen- Moldova are leading in the region, although the
mental policies adopted by the government or ties in the region. The 10-years framework policy tal situation among the EaP partners, followed reduction rate has slightly declined compared to
parliament. Armenia started to develop the third on Sustainable Consumption and Production is by Armenia and Georgia. Moldova is no longer last year’s Index.
generation of the NEAP in 2013. under preparation in Armenia, Ukraine and Mol- among the top three countries and equalled with
dova. Discussions on the need for Green Economy Azerbaijan. Ukraine has the worst results in this Georgia has the highest pesticides input per
Georgia and Belarus share fourth place in the policy is the most popular new trend after Rio+20 section. At the same time, Ukraine has shown the hectare, almost twice exceeding the EU average.
ranking. Georgia adopted the second generation among the six EaP countries. biggest progress in comparison with the 2012 In- Moldova and Belarus correspond to the EU prac-
of the NEAP in January 2012. It is the only coun- dex. Armenia and Azerbaijan follow while Belarus, tice, and Ukraine is the forerunner using only 0,6
try from the region that is yet neither a signatory Several indicators were considered to assess Georgia and Moldova performed worse than last kg per hectare and thus putting the least pressure
nor party to the Espoo Convention. Belarus rati- sustainable development and trade. Ukraine rati- year. Azerbaijan possesses the highest Water on the soil. Meanwhile, the level of soil erosion
fied the Bern Convention on European Wildlife fied the greatest number of ILO conventions (69) Exploitation Index (WEI), while in Armenia it has remains very high in EaP countries. All of them
and Natural Habitats in 2013. Ukraine keeps the among the EaP countries; 60 out of those are in been significantly reduced. Both Moldova and exceed the EU-27 average. The worst situation is
lead in the region regarding the number of En- force. Azerbaijan follows with 57 and 55 conven- Ukraine achieved some improvement in this indi- in Ukraine, where erosion reached 57.5% in 2011
vironmental Conventions and Protocols ratified. tions correspondingly, Belarus 49 and 42, Mol- cator. Belarus remains the best with no changes and only slightly improved in 2012, still being
The environmental policy and legislation develop- dova 42 and 40, Armenia 29 and 8 and Georgia in its WEI, as well as with the lowest level of three times higher than in the EU-27. Armenia
ment process shows some positive dynamics in closes the list with 16 ILO conventions ratified wastewater discharge. While Ukraine’s and now follows with 42%, which is an improvement;

82 83
 Azerbaijan and Georgia stay without change with year is too short a period to feel the difference Moldova is the best at using the opportunities for Georgia is the most active participant in EU pro-
36.4% and 33% correspondingly. The situation in in such stressed sectors as water and waste and mobility to the EU and ranks highest in people- grammes and agencies among the EaP countries.
Moldova and Belarus has worsened. In absolute even more so soil. Another factor is the quality of to-people contacts. Ukraine follows second, while Armenia, Ukraine and Moldova follow next more
figures the situation in these two countries still statistics, which is also gradually being improved. Georgia and Armenia stay closely behind in third or less at the same level. Azerbaijan and Belarus
looks relatively well, but Moldova’s eroded areas Overall, it is too early to conclude that the trends and fourth position. are the most reluctant participants.
grew by 4% in comparison with 2011 and now identified here are stable.
constitute 30% of the territory; and in Belarus In 2012 the EU countries issued the highest Georgia hosted the highest number of youth proj-
soil erosion grew by 9% in 2012, constituting Interagency coordination and cooperation number of Schengen visas, about 1.3 million, to ects, 36, in 2012, compared to only one project
already 28% of the territory. remains to be the main challenge in reducing Ukraine. The number of Ukrainians travelling to each in Belarus and Azerbaijan. Armenia has the
environmental pressure and increasing resource the EU has increased in the last year, as a result highest number of participants in youth exchang-
In terms of forest area, only Belarus and Georgia efficiency. The trend of growing air pollution is of the facilitated visa regime. Although the EU es per capita, while Ukraine the lowest. Georgia
exceed the EU-27 share. The trend for Belarus is observed in all countries with significant contri- does not have a visa facilitation agreement with also hosted the most EU volunteers per capita,
negative: 2% was lost in 2012. Other countries bution from the energy sector. To combat this Belarus, Belarusians are the most frequent travel- while Armenia sent the most volunteers to the
remain on the same level: Ukraine has propor- and other negative trends, the environmental lers to the EU. Every 13th Belarusian received a EU. Armenian students are the best at taking ad-
tionally half as much forestland as the EU-27 governance reform should receive more attention Schengen visa last year and travelled at least once vantage of the EU funded scholarship programme
average, while Armenia, Azerbaijan and Moldova and support within the countries’ cooperation to the EU. At the opposite end of the scale, Ar- Erasmus Mundus, while Azeri students are the
each have only one third. A similar situation is with the EU. menia has the lowest number of Schengen visas least keen.
observed with natural protected areas. None issued and only 1 for every 715 Armenians had a
of the EaP countries came close to the EU-27 The progress in policy elaboration and interna- visa to travel to the EU last year. Although Ukraine has the highest number of uni-
average, however, Azerbaijan ranks highest with tional cooperation was slower in some countries. versities involved in EU funded Tempus projects,
two thirds of EU areas, followed by Ukraine with The gap between the adoption of new strategies, According to the migrant stock data for 2012 compared to the total number of universities,
one third and Moldova with one fourth being plans and laws and the resource efficiency and the almost 8% of Moldovan citizens are residing the country ranks the lowest in this category.
the worst. In 2012, the majority of countries state of the environment has tended to reduce. legally in EU countries. Belarus is next with 3% of Armenian, Georgian and Moldovan universities
enlarged their natural protected areas. Armenia Moldova remains the most successful in ensur- its population having moved to the EU. Ukraine participate more often in Tempus projects. All
was the best performer and increased its share by ing environmental policy effectiveness, followed has the biggest diaspora in the EU with more six countries had a similar level of involvement,
3% in 2012, leading the EaP group with overall by Belarus and Armenia. Despite having the than 1 million of its citizens, or 2.35% of the 10-11 projects per country, in bilateral and
12%. Ukraine, Moldova and Georgia have also biggest territory in Europe and inheriting heavy entire population, living in the EU. Azeris are the multilateral projects of the European Training
improved the situation. Azerbaijan with a total environmental problems from the past, Ukraine least attracted to move to the EU, with less than Foundation.
10% and Belarus with 7.7% share are second and has shown the best overall positive dynamics in 35,000 choosing this path.
third without change to the size of their natural environmental performance in the current Index When it comes to the Bologna process and
protected areas. in comparison with the other EaP countries. Participation in EU programmes and agencies is general education reforms, Georgia is the best
open to all EaP countries that have Partnership performer. The country managed to undertake se-
The general conclusion can be drawn that the and Cooperation Agreements (PCA) with the rious reforms back in the early 2000s and the cur-
majority of the EaP countries are slowly progress- EU. However, despite Belarus not having a PCA, rent situation in many ways reflects that change.
ing in environmental policy reform required People-to-People the EU opened several programmes for Belarus’ Belarus is lagging behind on the majority of
by the bilateral agreements with the EU and and Policies on Education, participation as well. Eligibility for participation education indicators. This is due to the fact that
Multilateral Environmental Agreements (MEAs). Culture, Youth and in selected programmes and agencies is defined education in Belarus is totally subordinated to
This refers to planning, adoption, implementa- Information Society by the European Commission according to the the government, while reforms are mostly formal.
tion and reporting of environmental policy and needs of each country and is provided for in bi- Other countries, notably Ukraine, Moldova, Ar-
its sectors. Slight improvements in the water This part of the Index looks at the mobility of citi- lateral protocols. PCA Protocols were signed with menia and Azerbaijan, have so far preserved the
sector, waste management and soil rehabilitation zens, including students, at educational policies, Ukraine, Moldova and Armenia. Azerbaijan and soviet legacy of the government trying to control
signal some positive trends in the effectiveness focusing on the Bologna process, and at policies Georgia are still negotiating their protocols. All universities and at the same time are implement-
of environmental protection measures. However, on education, culture, youth and information six EaP countries participate in the 7th Frame- ing Bologna principles. Moldova still debates the
this is also the result of many years of long-term society. work Programme for Research and Technological new Code on Education, which, once adopted, will
activities having a cumulative effect, since a Development (FP7). bring together all the legal provisions on educa-

84 85
 tion and replace the outdated law on education provision of youth work and informal education lion in 2011-2013. Yet, when ENPI assistance is in a partner country with a specific reform task
from 1995. In Ukraine the three-cycle system is in Armenia. Until 2009, there were only frag- calculated per capita, Ukraine is on the same level or to provide short term training. The countries
rather a formality, since it coexists with the old mentary provisions for youth policy in Georgia as Azerbaijan and Belarus, with only EUR 3.3 per most eager to receive EU advice are Moldova (113
two-cycle system and limits the potential for the when the development of a National Youth Policy capita allocated from the EU in 2012. In contrast, requests), Ukraine (100 requests) and Belarus (58
mobility of students. The situation is similar in started. The new law was adopted and came into the EU allocation per capita to smaller countries requests). Moldova and Ukraine hosted the larg-
Armenia where MA programmes exist rather as a force in 2012. is much higher: EUR 35 in Moldova, EUR 24 in est number of TAIEX events in 2012, 39 and 37
variation of the old specialist programme. Armenia and EUR 19 in Georgia per year. accordingly. Surprisingly, Azerbaijan and Belarus
Georgia adopted its legislation on cultural policy hosted more TAIEX events than Georgia and Ar-
The situation regarding the autonomy of uni- relatively recently and opened the debate on In 2012, for the first time, the EU distributed menia. Ukraine and Belarus lead on the number
versities with respect to academic, institutional, improving the youth policy. Moldova still has no funding from the Eastern Partnership Integra- of officials participating in TAIEX trainings.
personnel and financial components shows that comprehensive youth report — only numerous tion and Cooperation (EaPIC) programme. The
the government controls universities in many fragmented studies on youth. There has been new instrument worth EUR 130 million for Twinning projects are longer term peer-to-peer
respects, denies them the right to issue diplomas progress though in preparing a new law on youth. 2012-2013 provides additional funding to EaP projects between public administrations of EU
and grant qualifications and allows only limited Moldova and Ukraine adopted laws on volun- countries according to the principle of ‘more member states and EaP countries. Ukraine and
institutional and academic freedoms. Ukraine is teering. Civil society in Belarus has advocated a for more’ – the more a country progresses in its Azerbaijan initiated three new twinning projects
the only EaP country that lacks modern legisla- number of amendments to the law on volunteer- internal reforms for democracy, respect of human each in 2012. Georgia added two new projects
tion on education. A new bill on Higher Educa- ing, yet the authorities have so far been reluctant rights and the rule of law, the more support it and Moldova one. Additionally Armenia and
tion is currently being debated. At the same time, to improve the legislation. can expect from the programme. According to EU Moldova host high-level EU advisors who help
Ukraine is doing better in terms of the National assessment and supported by the findings of last individual ministers and high ranking officials
Qualifications Framework. In April 2012 the year’s Index, three countries made good progress with sectoral reforms. In 2012 the EU delegated
Ministry of Education and Sciences of Ukraine on deep and sustainable democracy last year and 15 high-level advisors to Moldova and 13 to
approved the implementation plan for the Na- Assistance received additional financial support: Moldova Armenia.
tional Qualification Framework for 2012-2015. In (EUR 28 million), Georgia (EUR 22 million) and
November 2012 a similar Regulation on Educa- Among the EaP countries, Moldova and Georgia Armenia (EUR 15 million). Unfortunately the EU All six EAP countries are entitled to funding
tional Qualification was adopted in Armenia. are the main beneficiaries of and the most reliant has done very little to publicise and to explain within the Comprehensive Institution Building
on EU assistance. According to the latest available to the people in Ukraine, Azerbaijan and Belarus (CIB) initiative designed to strengthen the capaci-
No EaP partner has made progress in providing data funding from the EU and its member states why their governments were not entitled to ties of key institutions involved in preparing,
better opportunities for foreign, including EU, to Moldova and Georgia accounts for about 3.8% increased funding. negotiating and implementing the new Associa-
students to study in the EaP countries. The ma- and 2.5% of their GDP. Armenia took over the tion Agreements with the EU. The EU support
jority of foreign students still come from neigh- third position from Ukraine in the overall ranking Moldova and Armenia were the only countries for CIB in 2012 varied from EUR 17 million for
bouring post-soviet countries and Central Asia. of EU assistance. Belarus and Azerbaijan benefit to continue benefitting from macro-economic Moldova to EUR 7 million for Azerbaijan. Belarus
very little from EU assistance. While the rela- assistance from the EU in 2012. While Moldova is the only EaP country that did not receive CIB
All EaP countries have similar scores assessing tively low result of Ukraine is mainly determined received a grant of EUR 30 million, Armenia funds. Three countries — Ukraine, Moldova and
policies in culture, youth, information society, by its large population size and high GDP, in the received EUR 39 million as a loan from the EU. Azerbaijan — received EU funds for regional and
media and audio-visual use. More specifically, case of Azerbaijan and Belarus the low scores are In February 2013 the EU committed EUR 610 rural development in 2012.
Ukraine, Moldova and Armenia are the most a reflection of the EU’s ‘less for less’ approach ac- million in macro-economic financial assistance
progressive in cultural policy, although Ukraine cording to which the EU offers little assistance to to Ukraine. However, so far no funds have been All EaP countries, except Azerbaijan, are involved
initiated reforms and monitoring through the countries with little democracy. disbursed as Ukraine did not meet the IMF in ENPI East regional and interregional projects.
Cultural Policy Review later than other EaP requirements. Ukraine, Moldova and Belarus are the most ac-
countries. The European Neighbourhood and Partnership tive participants in cross-border projects taking
Instrument (ENPI) is the EU’s main assistance As a measure of linkage between the EU and EaP advantage of their geographical proximity and
The youth policy scores take into account the instrument in relation to the EaP countries. In countries in terms of transfer of experiences, shared land borders with EU member states.
existence of legislation, national youth reports 2007-2010 the EU committed around EUR 1 bil- know-how and contacts between civil servants,
and legal provisions for volunteering and youth lion to the EaP countries; this amount increased the Index looks at the number of TAIEX and In 2012 the Neighbourhood Investment Facil-
work. All EaP countries are making progress to over EUR 1.2 billion in 2011-2013. Ukraine Twinning projects. TAIEX provides targeted ity (NIF) contributed EUR 69.2 million to three
in developing new strategies and laws, e.g. on is the largest beneficiary of the ENPI among the policy and legal advice, usually by sending EU regional and seven national projects in Eastern
volunteering. There are strong debates on the EaP countries receiving around EUR 470 mil- experts to help a ministry or local government Europe. Armenia received the greatest funding

86 87
 from NIF, EUR 17 million, for two new infra- Management EaP countries has established an EU coordination of European integration was appointed in the
structure projects. Georgia is the second biggest of European mechanism that is comparable to that applied by new government. Instead, the Prime Minister
beneficiary with EUR 12 million for two new Integration the new member states before EU accession, e.g. Mykola Azarov stated that he was personally in
projects. Belarus and Ukraine did not receive any UKIE in Poland, in Georgia the Office of State charge of coordinating the European integration
new grants from NIF in 2012. The scores on Management of European Integra- Minister on European and Euro-Atlantic Integra- efforts. Additionally, the chairman of the Na-
tion explain how EaP countries ‘manage’ and or- tion, at least where its powers are concerned, can tional Security and Defence Council was assigned
EU support to civil society in Eastern Europe ganise both their links with the EU and approxi- be seen as an efficient model. This office serves as competences to deal with European integration
increased considerably in 2012. EU funds to civil mation to the EU. Thus the Index looks at the the Secretariat of European Integration Commis- without any powers over the government and
society organisations (CSOs) flow through the institutional framework for European integration, sion, chaired by the Prime Minister. In Moldova, individual ministries. In February 2013 the head
European Instrument for Democracy and Human mechanisms of policy coordination and imple- the Minister of Foreign Affairs and European of the Ukrainian Mission in Brussels acquired ad-
Rights (EIDHR), the thematic programme Non- mentation, legal and institutional approxima- Integration is in charge of EU issues, but key ditional ‘integration’ functions, being appointed
State Actors and Local Authorities (NSA&LA) tion, management of EU assistance, professional decisions concerning European integration are as a special envoy on integration. These overlap-
and the Eastern Partnership Civil Society Facil- development in the field of European integration considered at the level of the Governmental ping competences with no added value have no
ity (CSF). The CSF is the newest of the instru- available to civil servants and to students at uni- Committee for European Integration, similar to positive implications for streamlining the reform
ments and has a budget of EUR 23.3 million versities, and the participation of civil society. the one in Georgia. Both in Georgia and Moldova process in line with the EU requirements. The
for 2012-2013. The CSF aims at strengthening the official in charge of European integration oc- Ukrainian side of the EU-Ukraine Cooperation
civil society to become an agent of change and The chosen approach to Management of Euro- cupies the position of the Deputy Prime Minister Committee — what used to be a collegiate body
democratisation in the EaP countries. In 2012 pean Integration seems to reflect the importance with respective powers of coordination. responsible for European integration — is no
the CSF focused on strengthening civil society’s attached by each EaP country to its relations with longer functional given that it has not convened
networking capacity and improving their abilities the EU. In this respect we can clearly identify two Armenia progressed even further in Manage- for a very long time.
to promote national reform and increase public groups of countries: the first group – Georgia, ment during the past year than in 2011. Experts
accountability. Overall, the EU distributed more Moldova Ukraine and Armenia – have a rather de- reported better ability of the government to In Azerbaijan there is a collegiate body – the State
funding to CSOs in countries that are lagging veloped system of management; and the second implement decisions and agreements reached European Commission, chaired by the Minister
behind in adopting EU standards or are notorious group – Azerbaijan and Belarus – invest fewer in the field of European integration. Moreover, of Economic Development since December 2012.
for restricting CSOs activities. Thus, in 2012 the efforts in developing closer links and approxima- Armenia’s sectoral policies became more con- The Commission includes 34 representatives from
EU provided EUR 5.5 million to Belarusian CSOs, tion with the EU. Georgia and Moldova have the sistent with EU requirements. Two collegiate different ministries. Yet, it is not clear whether
EUR 5.2 million to Azeri CSOs, EUR 4 million to most sophisticated system of management, while bodies dealing with European integration exist in the Commission meets regularly and whether it
Ukrainian CSOs and only EUR 1.5 million to Mol- Ukraine and Armenia lag somewhat behind. In Armenia: the Inter-agency Commission chaired exercises de-facto coordination functions.
dovan CSOs. Moldova is the only country that did terms of trends as compared to last year’s Index, by the Secretary of the National Security Council,
not receive any country allocation from the CSF, we do not see any significant changes in any of established back in 2008, which is responsible Ukraine has the most elaborated system for legal
while Azerbaijan received the highest amount of the countries apart from Armenia, who clearly for cooperation with European structures and approximation, closely followed by Georgia and
EUR 3.6 million. made progress. The 2013 Index also registers a surveying the implementation of the ENP Action Moldova. This is not to say that comprehensive
rather slight improvement in Moldova and Be- Plan, and the more recent Inter-agency Commis- approximation takes place in reality in Ukraine,
The Index also looks at cooperation between the larus and insignificant decline in Azerbaijan. sion chaired by the Prime Minister, responsible but it takes into account policies and procedural
EaP countries and European financial institutions for coordination of cooperation between Armenia arrangements that were introduced in Ukraine
— the European Investment Bank (EIB) and the Performance with respect to different aspects of and the European Union. before 2010. This part of the Index looks at policy
European Bank for Reconstruction and Develop- Management is uneven. When it comes to insti- and procedures, while the impact of approxima-
ment (EBRD). While all EaP countries have re- tutional arrangements for European integration, Ukraine continues to lag behind, since it has no tion is assessed in the Approximation dimension
cently benefitted from loans offered by the EBRD, in particular policy coordination and implemen- European Integration Strategy and the objectives of the Index. Georgia probably has the most
the EIB funded projects only in Ukraine, Moldova, tation, Moldova remains the leader followed defined jointly with the EU within the Associa- efficient system of legal approximation given that
Georgia and Armenia. Ukraine is the biggest by Georgia. Moldova is the only country in the tion Agenda are barely followed through at the procedurally any bill or regulation submitted to
beneficiary of loans from these institutions with region that not only has a European Integration domestic level. Moreover, the country lacks a co- the legislature has to be accompanied by an ex-
accumulative figure of around EUR 1.6 billion Strategy, which helps to streamline reforms in ordination mechanism for European integration, planatory note that scrutinises compliance with
for 39 projects. However, comparatively in terms line with objectives agreed bilaterally with the a structure that was in place up until 2010. The the EU acquis. No significant changes in legal ap-
of level of loans to GDP and population, smaller EU, but also committed budgetary resources for situation became even less clear since December proximation occurred in any of the EaP countries
countries – Georgia, Moldova and Armenia – are strategy implementation. Although none of the 2012 when no deputy prime minister in charge compared to last year’s Index.
leading in terms of benefits from the European
financial institutions.

88 89
 Management and coordination of EU assistance Azerbaijan, both at the same level, even further portance on this issue. All EaP countries are more
shows interesting results. Belarus and Armenia behind. Armenia’s progress has to do with the or less at the same level. Armenia and Georgia
improved their scores, while other countries fact that there are now various training pro- show better results than Ukraine and Moldova.
stayed at the same level. As a result, Belarus grammes for civil servants, mostly funded by the Azerbaijan and Belarus are again the underdogs.
became the leader among the EaP countries, fol- EU, while last year this was not the case. More-
lowed by Moldova, Georgia and Armenia. Ukraine over, Armenia is the only country in the region There might be improvements in the next Index if
and Azerbaijan, joint fourth and fifth, lag behind. that allocates state funding for European Studies some of the efforts currently underway deliver. In
at university-level. However, this practice is so March 2013 the Ukrainian government adopted
While Belarus had a relatively efficient system far limited to only one university, i.e. the State a concept of awareness-raising for the period
of assistance management already last year, it Science Committee of the Ministry of Educa- until 2017. It should however be followed up by
adopted the National Program of International tion and Science provides annual grants to the an action plan and budget allocations. Similarly,
Technical Cooperation for 2012-2016 in May Centre for European Studies at the Yereven State in Georgia the process of consultations with
2012. This innovation explains Belarus’ improve- University. Ukraine still scores highly, since it civil society to elaborate an awareness-raising
ment. Moreover, as a result, Belarus is now the has a special state programme for training in the strategy started in 2013. It should be noted that
only country in the region that has a needs as- field of European integration with limited budget special EU information centers were established
sessment report for international assistance. It allocations. This programme is implemented by in all EaP countries, except in Azerbaijan, but
also has, along with Moldova and Armenia, a web the School of Senior Civil Service and National those are funded entirely by donor organisations.
resource with a database of assistance instru- Academy of Public Administration, which reports Georgia again provides a good example, where
ments and information about funding opportuni- to the Office of the President of Ukraine. Other public funds are used to fund the NATO and EU
ties. This excludes, however, funding opportuni- EaP countries (especially Moldova and Arme- Information Centre.
ties for civil society. nia) rely mostly on international donor support,
including TAIEX and twinning instruments of Finally, the Index looks at the level of civil society
All EaP countries have national coordinators for the EU. Unfortunately none of the EaP countries involvement in the Management of European
EU assistance tasked with the strategic planning has introduced a mechanism for assessing the Integration. It looks at both civil society activities
of national reforms and coordinating the instru- effectiveness of training programmes for govern- and their impact on decision-making. Moldova
ments for their implementation. Georgia devel- ment officials in the field of European integration, and Georgia are the frontrunners due to the fact
oped a best practice in Management of European indicating a lack of data on the effectiveness of that civil society organisations in these countries
Integration by combining the powers of manag- training and the use of resources (both national have more opportunities to be included in the
ing EU funds and coordinating EU-related policy and international). Only two EaP countries — policy process, using institutionalised forms of
in one post, that of the State Minister for Euro- Georgia and Armenia — assess training needs of public consultations with governmental officials
pean Integration. In Ukraine, Armenia and Azer- public servants in the area of European integra- – the National Participation Council in Moldova
baijan the Minister of Economy or Economic De- tion and publish relevant reports. and the Public Advisory Body under the State
velopment holds this EU assistance coordination Minister on European Integration in Geor-
function. In Moldova, the External Assistance Overall, there is much room for improvement in gia. NGOs in all EaP countries produce regular
Unit within the State Chancellery is in charge of all EaP countries when it comes to the capacity reports and assess government performance and
EU assistance, while in other EaP countries the building of civil servants at central and local level progress on European integration.
coordination of EU assistance is placed within the who deal with the EU and increasing the effec-
Ministry of Economy or Foreign Affairs. tiveness of respective training programmes.

Ukraine lost its leading position when it comes This dimension of the Index also looks at aware-
to training in the field of European integration, ness-raising about European integration. Simi-
both for civil servants and at the university level. larly to last year’s Index, the current report shows
Ukraine’s score did not change, but Armenia limited awareness-raising activities in all EaP
made significant progress and overtook Ukraine countries. Most activities are funded and imple-
to now be the leader among EaP countries. Geor- mented by foreign donors and NGOs, while the
gia lags significantly behind, leaving Moldova and governments of these countries place little im-

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 Annex 1

The methodology
of the Index

How can the European Integration Index achieve diate scores, such assessments were coded as 0.5
a valid and reliable measurement of its items? or even 0.25 or 0.75 when a more nuanced valua-
The research relies on two types of data: expert tion was needed (labelled ‘calibration’).
assessments commissioned by the core project
team and numerical data from publicly available For items requiring numerical data (quantita-

Annexes
sources. It is intended that this general design tive indicators) the figures were coded through a
uses the best existing knowledge and improves linear transformation using information about
this body of knowledge by focused, systematic distances between country scores. The transfor-
data collection that benefits from the Open mation used the following formula:
Society Foundations’ unique embeddedness
and access to local knowledge in EaP countries.
x – x min
However, expert surveys are prone to subjectivity.
y=
Many existing expert surveys are characterised x max – x min
by a mismatch between ‘soft’, potentially biased
expert opinions and ‘hard’ coding and aggrega-
tion practices that suggest a degree of precision where x refers to the value of the raw data; y is
not matched by the more complex underlying the corresponding score on the 0-1 scale; and xmax
reality and their verbal representation in country and xmin are the endpoints of the original scale,
reports. also called ‘benchmarks’. We preferred this linear
transformation over other possible standardisa-
The expert survey underlying the Index therefore tion techniques (e.g., z-transformation) since it is
avoids broad opinion questions and instead tries the simplest procedure.
to verify precise and detailed facts. Complex
issues are disaggregated into detailed questions The benchmarks may be based on the empiri-
that enable experts to provide more specific cal distribution, on theoretical considerations,
responses. Guided by a detailed questionnaire, on the country cases examined or on external
experts are less often forced to assign subjective standards. In the case of the Eastern Partnership
weights to different aspects of reality in their Index, this problem is intertwined with the ques-
evaluation. Most of our survey questions asked tion of the finalité of the Eastern Partnership.
for a ‘Yes’ or ‘No’ response to induce experts to Whereas the EU refuses to consider accession an
take a clear position and to minimize misclassifi- option, at the same time it tends to expect stan-
cation errors. Experts were requested to explain dards similar to those of the accession process
and document their responses. and some EaP countries aspire to EU member-
ship. In addition to this uncertain finalité, many
As a rule, all questions to be answered with ‘Yes’ items entail the problem of determining unam-
or ‘No’ by the country experts were coded 1 = yes biguous best or worst practice benchmarks, both
or positive with regard to EU integration and 0 in terms of theory and empirical identification.
= no or negative with regard to EU integration Given these difficulties, we have opted for a mix
(labeled ‘1-0’). If the expert comments and the of empirical and theoretical benchmarks.
correspondence with experts suggested interme-
92 93
Annex 1 Annex 1

For items scored with 0-1 or the intermediate 0.5, Since it is difficult to establish a clear priority of
Question Assessment Score benchmarks are defined theoretically by assign- one or several categories over others, we have
ing 1 and 0 to the best and worst possible perfor- decided to assign equal weighting to all categories.
Is the electoral management No. According to a national opinion poll conducted by 0 mance. In contrast, benchmarks for quantitative The equal weighting of all components is also in-
commission perceived as IFES before the 2012 parliamentary elections more indicators were defined empirically: in the Link- tuitively plausible since this method corresponds
impartial, transparent and le- Ukrainians lack confidence in the CEC (47%) than age dimension we assigned 1 and 0 to the best to the conceptual decision of conceiving democ-
gitimate by parties and voters? have confidence (34%) in this commission. The CEC and worst performing EaP country to emphasise racy as composed of seven categories placed on
Yes/No is generally perceived as transparent. Meanwhile, the the relative positioning of a country vis-à-vis its the same level. Equal weighting assumes that all
impartiality of the CEC raises serious doubts since its peers. This holds with a few exceptions mostly in components of a concept possess equal concep-
members are political appointees. the questions on people-to-people linkage and as- tual status and that components are partially
sistance, where 0 was used as a baseline in order substitutable by other components.
Yes. According to OSCE/ODIHR LEOM “the election 1 to make tracking of the progress possible from
administration performed in an overall transpar- one year to the next. In the Approximation and An arithmetical aggregation of components is,
ent and professional manner and was perceived as Management dimensions we defined benchmarks strictly speaking, only possible if the components
impartial by the majority of stakeholders” during the either on the basis of theoretical considerations in the data set are interval variables, that is, that
5 June 2011 elections. Parliamentary parties nomi- or based on the performance of other East Euro- the distances between the scores of items, subcat-
nated members to serve on election management pean countries (including new EU member states) egories, categories, sections and dimensions have
bodies at all levels. Nevertheless, the main opposition in order to focus on gaps or catching-up relative meaning. Most numerical data is measured at in-
party, Party of Communists, contested the political to this group. terval level: in these cases we know, for example,
independence of the Central Electoral Commission that a share of EU exports amounting to 40%
(CEC) since its composition does not represent the To construct an Index that is a composite indica- of GDP is twice the share of 20% and that this
parliamentary majority and the opposition in a tor it is necessary to aggregate the individual ratio is equal to the ratio between 60% and 30%.
balanced manner. The CEC meetings were generally scores resulting from numerical data and expert For the yes-no questions and items measured
conducted in a collegial manner and were open to the assessments. However, aggregation implies deci- with other ordinal scales we only have informa-
public, media and observers and broadcasted online. sions about the relative weighting of components tion about the ordering of scores, not about the
The decisions were published on the CEC website. that need to be explained. The hierarchical struc- distances between scores.
The level of confidence in the electoral bodies at the ture of the Eastern Partnership Index reflects the-
regional and local level is lower. oretical assumptions about the components and For example, we do not know the distance
boundaries between concepts. For example, we between a yes and a no answer for the question
define the section deep and sustainable democ- regarding parties’ equitable access to state-owned
Are there systems in place to Yes, but the system is ineffective. Although under the 0.5 racy as consisting of seven categories: elections; media. Neither do we know whether the dif-
preclude vote buying? Electoral Code, a political party or candidate could media freedom, association and assembly rights; ference between yes and no for this question is
Yes/No be de-registered if the fact of vote buying is proved human rights; independent judiciary; quality of equivalent to the difference between yes and no
in court, the system is totally ineffective. In practice, public administration; fighting corruption; and for the subsequent question on whether political
none of the cases of vote buying identified by the accountability. The individual weighting of each parties are provided with public funds to finance
political parties and non-governmental organisations category should depend on the importance each campaigns.
and brought to the attention of the election adminis- category has for deep and sustainable democracy.
tration and courts have been effectively examined or One could, for example, argue that free and fair In principle, this uncertainty would limit us to de-
followed up. The article on vote buying was consider- elections constitute the core of democracy and termine aggregate scores by selecting the median
ably amended in December 2011. Following a civil should therefore be given a higher weighting than out of the scores a country has achieved for all
society campaign the implementation of the Criminal the category of association and assembly rights. components (assuming equal weighting). This
Code provision on vote buying was also amended in Conversely, one could also argue that democracy would, however, mean omitting the more detailed
May 2012. However, according to the OSCE/ODIHR in most EaP countries is mainly impaired by information contained by the numerical items.
report “... it remains unclear as the current wording unaccountable governments and lacking media To use this information and to put more empha-
has yet to be tested and interpreted in court”. More- pluralism, while elections are more or less well sis on big differences between countries, we have
over the articles on vote buying in the Election and organised. opted to construct quasi-interval level scores by
Criminal Codes should be harmonized. adding the scores of items measured at ordinal

94 95
Annex 1 Annex 1

level. This has been standard practice in many The survey was implemented in five steps. First,
Item Raw data Transformation Score indices and can also be justified by the rationale the country team leaders selected and commis-
behind equal weighting. Given the frequent sioned local experts, asking them to evaluate
Share of commodity imports 26 percentage Linear transformation. 26 – 20 uncertainty about the importance of components the situation in their country on the basis of the
0.24 =
from the EU, % (three-year points Benchmarks defined by 44.1 – 20 for aggregate concepts, the safest strategy seems questionnaire. Different parts of the question-
moving average for 2010-2012) best and worst performing to be assigning equal status to all components. naire were assigned to sectoral experts. Next, the
EaP countries; Equal status suggests assuming that a score country team leaders returned the responses to
best = Moldova (44.1%); of 1 used to code a positive response for one the core project team, which reviewed and coded
worst = Belarus (20%) question equals a score of 1 for another positive the responses to ensure cross-national compara-
response. Moreover, equal status means that all bility. The experts’ comments allowed us to make
components constituting a concept are partially a preliminary coding (scoring) that was sensitive
Vote differential between 4.46 percentage Linear transformation, 4.46 – 100 substitutable. The most appropriate aggregation to the specific context that guided individual
0.96 =
strongest party / electoral alli- points. In the best = 0 (maximum com- 0 – 100 technique for partially substitutable components experts in their assessments. In a third step, the
ance and the main opposition 2012 parliamen- petitiveness), worst = 100 is addition. core project team returned the coded assess-
party/ alliance, in most recent tary elections (no competitiveness) ments for all six EaP countries to the local coun-
legislative elections. Difference in Ukraine the Since the number of items differs from sub- try team leaders and experts, requesting them (1)
between vote shares in percent- Party of Regions category to subcategory and since we wish to to clarify their own assessments where necessary
age points. received 30% apply equal weighting, we have standardized and (2) to review the codings by comparing them
(6,116,746) the subcategory scores by dividing them by the with codings and assessments made for the other
of the votes, number of items. Thus, the subcategory score countries. Experts who disagreed with the evalu-
while the main ranges from 1 to 0 and expresses the share of ation of their country were requested to explain
opposition yes-no-questions answered positively in terms their disagreement to the core team. In a fourth
party Batkivsh- of the aggregate concept (and/or the extent to step, the answers and the scores were peer-re-
chyna 25.54% which numerical items or ordinal-level items are viewed. This stage is crucial to ensure the accu-
(5,209,090 votes). evaluated positively). racy of data and therefore involves several parallel
processes. (1) An external review was commis-
Quasi-interval level scores allow a range of aggre- sioned for some parts of the Index. An expert on
Personal autonomy and indi- 11 (subscore) Linear transformation. 11 – 3 gation techniques at higher levels of aggregation a particular topic from a particular country, who
0.73 =
vidual rights (Freedom House, Benchmarks defined by 14 – 3 (subcategories, categories, sections and dimen- was not involved in filling in the questionnaire,
Freedom in the World 2013, the subscores of the best sions). The most important methods are multipli- was asked to review the answers submitted by the
subscore) and worst performing cation and addition. Multiplication assigns more Index expert from the same country on the same
EBRD transition countries; weight to individual components, emphasising topic. (2) Guided by one of the experts, experts
best = Estonia, Slovakia the necessity of components for a concept. In from the six countries working on the same topic
(14); worst = Turkmeni- contrast, addition facilitates the compensation of had to review the scores in the respective parts
stan, Uzbekistan (3) weaker scores on some components by stronger of the Index once again and provide feedback to
scores on other components, emphasising the the core team. (3) The Open Society Foundations’
substitutability of components for a concept. experts also offered their expertise and made
ENP Social Cohesion funds: EUR 7 million Linear transformation, 7–0 observations. Finally, the core team reviewed and
0.30 =
Regional and Rural Develop- benchmarks defined by 23 – 0 We apply an additive aggregation of subcatego- adapted the scores in light of this multi-level ex-
ment – EU committed amount best performing EaP ries, categories and sections because this method pert feedback. This interactive evaluation was in-
for 2012 (EUR million) country and absence of fits the method used on the item level, reflects tended to facilitate mutual understanding among
financial support: the substitutability of components and is less the experts, as well as between the experts and
best = Ukraine (EUR 23), sensitive with regard to deviating values in indi- the coders in order to improve the reliability and
worst = 0 vidual components. To standardise the aggregate validity of the assessments.
sums and ensure equal weighting, arithmetical
means are calculated.

96 97
 Annex 2 Annex 2

Moldova Georgia Ukraine Armenia Azerbaijan Belarus

Linkage

Linkage
3
201
3
201 2
201

0.70 → 0.70 0.54 ↗ 0.57 0.67 ↘ 0.65 0.48 ↗ 0.49 0.38 ↗ 0.41 0.31 → 0.31
2
201
Approximation

Approximation
3
201
3
201 2
201
2
201
0.65 ↗ 0.67 0.58 ↗ 0.63 0.55 ↗ 0.58 0.56 ↗ 0.59 0.42 → 0.42 0.31 ↗ 0.33
Management

Management
3
201
3
201 2
201
2
201

0.57 ↗ 0.59 0.58 → 0.58 0.52 → 0.52 0.43 ↗ 0.51 0.34 ↘ 0.33 0.19 ↗ 0.24

98 99
 List of Experts

Armenia Azerbaijan Belarus Georgia

Boris Navasardian Leila Alieva Dzianis Melyantsou Tamara Pataraia
Yerevan Press Club Center for National and International Studies Belarusian Institute for Strategic Studies Caucasus Institute for Peace,
Democracy and Development (CIPDD)
Arevhat Grigoryan Intigam Aliyev Nastassia Haliak
Yerevan Press Club Center for Legal Reforms NGO Association “Green Alliance” Tamara Khidasheli
Georgian Young Lawyers Association, GYLA
David Tumanyan Cabir Aliyev Yauheny Preiherman
Community Financial Officers Association independent expert Liberal Club Research Center Manana Kochladze
CEE Bankwatch Network, Regional Coordinator
Vahagn Ghazaryan Vugar Godjayev Aliaksandr Autushka-Sikorski for Caucasus / NGO “Green Alternative”
independent expert Human Rights House Belarusian Institute for Strategic Studies
Kakha Gogolashvili
Varuzhan Hoktanyan Togrul Juvarli Dzmitry Bruhavetski Georgian Foundation for Security
Transparency International Turan information agency independent expert and International Studies (GFSIS)
Anticorruption Center
Samir Isayev 6 anonymous experts Kakha Kozhoridze
Ara Ghazaryan Legal Think Tank (government institutions Georgian Young Lawyers Association
“Arni Consult” law firm and state research centers)
Ilgar Hesenli Mariam Gabedava
Gevorg Arakelyan Center for National and International Studies Transparency International — Georgia
Association “For Sustainable
Human Development” Gubad Ibadoglu Lia Glonti
Economic Research Center National Tempus Office Georgia
Karine Danielyan
Association “For Sustainable Cesur Sumerenli
Human Development” The Doctrine Journalists’
Military Research Center

2 Anonymous experts

100 101
 Moldova Ukraine
Leonid Litra Crisitina Cojocaru Kateryna Shynkaruk
Institute of World Policy / independent expert, associated to Association Institute for Economic Research Roman Nitsovych
Institute for Development and Social Initiatives to Participatory Democracy and Policy Consulting “DiXi Group” think-tank
(IDIS) “Viitorul”
Veaceslav Berbeca Veronika Movchan Oleksiy Khmara
Alexandru Fala Institute for Development and Social Initiatives Institute for Economic Research Transparency International Ukraine
Institute of World Policy / (IDIS) “Viitorul” and Policy Consulting
Institute for Development and Social Initiatives Anna Golubovska-Onisimova
(IDIS) “Viitorul” Dumitru Drumea Taras Kachka UNENGO “MAMA-86”
Regional Centre for Environmental Studies independent expert
Elena Prohnitchi “ECOS” Natalia Chizhmakova
Association for Participatory Democracy Vadym Triukhan UNENGO “MAMA-86”
Iurie Pintea IMG Partners
Ion Muntean Institute for public policy Oleksandr Androshchuk
Institute for Development and Social Initiatives Iryna Sushko International Renaissance Foundation
(IDIS) “Viitorul” Victor Cotruta “Europe without Barriers” Initiative
Regional Environmental Centre Moldova Volodymyr Horbach
Ghenadie Mocanu Natalia Sysenko Institute for Euro-Atlantic Cooperation
Institute for Development and Social Initiatives Viorel Girbu independent expert
(IDIS) “Viitorul” Academy of Science of Moldova Oksana Bondar
Natalia Hnydiuk Vinnytsia Regional Centre for Information
Ghenadie Sontu independent expert “Kreatyv”
Advisory Committee of the Eastern Partnership
Culture Programme Iryna Fedorovych
Coalition on combating discrimination in Ukraine
Ion Guzun
Legal Resources Centre Denis Kovryzhenko
Laboratory of Legislative Initiatives
Onorica Banciu
independent expert Roman Kuybida
Centre for Political and Legal Reforms

102 103
 Project core team
Olga Kvashuk Viorel Ursu
International Renaissance Foundation Open Society European Policy Institute
(project coordinator)

Iryna Solonenko Martin Brusis

researcher at the European University Viadrina, KomPost-Projektverbund Project network —
Frankfurt (Oder) Institutions and Institutional Change
in Postsocialism, Germany

104 105
International Renaissance Foundation

International Renaissance Foundation (IRF) is the largest Ukrainian charity organisa-

tion that promotes civil society development in the country. The IRF is a part of the
Open Society Foundations (OSF) network founded by American financier and philan-
thropist George Soros.

Its main objective is to provide financial, operational and expert support for open and
democratic society development in Ukraine. IRF initiates and supports key civic ini-
tiatives, which foster the development of civil society, promote rule of law, indepen-
dent mass media, democratisation of education and public health, advancing social
capital and academic publications and ensuring protection of national minority rights
and their integration into Ukrainian society. IRF’s European Programme was estab-
lished in 2004. The goal of the Programme is to promote Ukraine’s European integra-
tion by providing financial and expert support to the relevant civil society initiatives.

The Open Society Foundations

The Open Society Foundations (OSF) work to build vibrant and tolerant societies
whose governments are accountable and open to the participation of all people. The
Foundations seek to strengthen the rule of law; respect for human rights, minorities,
and a diversity of opinions; democratically elected governments; and a civil society
that helps keep government power in check. The OSF implement initiatives to ad-
vance justice, education, public health, and independent media. Working in every part
of the world, the OSF place a high priority on protecting and improving the lives of
people in marginalized communities.

The Open Society European Policy Institute (OSEPI) is the EU policy arm of the Open
Society Foundations. OSEPI works to foster open societies inside and outside Europe
by leveraging the EU’s policies, legislation, funding, and political influence.

The Eastern Partnership Civil Society Forum

The Eastern Partnership Civil Society Forum (EaP CSF) is an umbrella organisation for
more than 700 civil society organisations from the six Eastern Partnership coun-
tries and the EU. Launched in 2009, the Forum provides a platform for interaction
between the EU and EaP civil society organisations and aims at facilitating reforms in
the EU’s Eastern partners and bringing them closer to the EU.

The Forum operates as an independent, transparent, and inclusive actor to secure

changes on key policy areas across the four Eastern Partnership thematic platforms,
in which the Forum has a permanent participant status. On the national level, the Fo-
rum aims to strengthen diversity and plurality of public discourse and policy making
in the EaP countries by holding governments accountable and protecting and promot-
ing fundamental freedoms, participatory democracy and human rights.
 eap-index.eu

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