2017年-CEPS欧洲政策研究中心_The_‘Berlin_Process‘_for_the_Western_Balkans–_Is_it_delivering_5页_623kb

The ‘Berlin Process’ for the Western Balkans – Is it Delivering?

Core Content

The Berlin Process was initiated in 2014 by German Chancellor Angela Merkel to support the integration of the Western Balkans into the European Union. It aimed to create a framework for four years of progress in reforms, resolution of bilateral and internal issues, and reconciliation among the region’s societies. The process was intended to complement the EU's formal enlargement policy and to address the political and institutional challenges in the region.

Main Points

• Origins and Purpose: The Berlin Process was launched to counter the perceived lack of EU commitment to enlargement, following Jean-Claude Juncker's statement in 2014 that the EU would not expand during his five-year term. It aimed to foster economic cooperation, particularly in energy, transport, and digital sectors, and to promote regional integration through initiatives like the "Regional Economic Area."

• Summit Structure and Participation: The summit series has included events in Vienna (2015), Paris (2016), and Trieste (2017). However, it has been attended by only seven EU member states, and has not replaced the more comprehensive EU-Western Balkans Summit, which last met in 2013.

• Underwhelming Outcomes: Despite high expectations, the Berlin Process has not delivered significant practical results. Many commitments remain on paper, and there has been minimal follow-up at the intergovernmental level. The establishment of the Regional Youth Cooperation Council, for example, has faced delays due to lack of government support.

• Rule of Law and Democratic Governance: The EU's focus on economic growth has overshadowed its commitment to rule of law and democratic reforms. In fact, the region has seen a decline in democratic governance and an increase in corruption and authoritarian tendencies. The EU has failed to adapt its approach to these challenges, continuing to rely on routine country reports and periodic visits.

• EU’s Role in Regional Crises: The EU has been ineffective in managing political crises in the region, such as the one in Macedonia. It has also failed to address unresolved bilateral disputes, including those between Croatia and Slovenia, Croatia and Serbia, and Macedonia and Greece.

• Need for a More Political Approach: The EU must adopt a more inclusive and politically engaged strategy, involving civil society and local communities, rather than focusing solely on political elites. The region's history of conflict and instability requires a more proactive and strategic EU response.

Key Information

• The Berlin Process has not fulfilled its original goals of making real progress in reforms and reconciliation.
• The EU's political profile in the region has diminished, with limited involvement from 21 EU member states.
• Economic cooperation has been prioritized, but has not translated into meaningful growth or development.
• The refugee crisis shifted EU focus away from rule of law and governance, leading to a lack of consistency in messaging.
• The Western Balkans remain a critical geopolitical challenge for the EU, and its failure to address the region's issues risks its credibility as a global actor.
• The 2018 London Conference was seen as an opportunity to elevate the Berlin Process into a strategic forum, but the EU has yet to fully capitalize on this.
• The EU27 should reinstate a bilateral summit in 2019 to provide the necessary political momentum for the pre-accession process.

Conclusion

The Berlin Process, while well-intentioned, has not lived up to its promises. It has failed to deliver on the reform process, reconciliation, and conflict resolution in the Western Balkans. The EU needs to re-evaluate its approach, increase its political engagement, and ensure that its commitments are backed by concrete actions and monitoring mechanisms. Only then can it restore its credibility and support the long-term stability and integration of the region.