Brussels, 26 September 2006
Accompanying measures in the context of
Bulgaria’s and Romania’s accession
Throughout the one and half decade of preparations
for EU accession Bulgaria and Romania have carried out an extraordinary reform
process and they have gone through a remarkable transformation. Their accession
does not compromise the functioning of the EU. However, there are still a
limited number of areas where further progress is needed in the months leading
to accession and beyond. Upon accession, the Commission will, if necessary, take
accompanying measures to prevent or remedy any persisting shortcomings
to ensure the smooth accession of both countries. These include
safeguard measures, transitional measures, financial corrections on EU funds,
and a cooperation and verification mechanism for the judiciary and the fight
These measures complement the Commission's
established tools to perform its role as guardian of the Treaties and to ensure
the correct application of EU policies in all Member States. These include
infringement procedures, competition policy measures, and [traditional] measures
for the management of EU funds, and monitoring mechanisms, for example in the
areas of Internal Market and Justice, Liberty and
The Commission will make full use of these
instruments wherever necessary to ensure the smooth accession of Bulgaria and
What are the safeguard clauses?
Safeguard mechanisms of last resort which are triggered either to prevent or
to remedy particular problems or threats to the functioning of the Union. Any
measures taken should be proportional to the corresponding shortcomings.
The EU legal order, which applies to all Member States, provides many
safeguard measures in the various EU policies.
In addition to this, the Accession Treaty for Bulgaria and Romania
provides for further safety nets to address potential accession related
difficulties. The following three safeguards can be invoked up to 3 years after
- a general economic safeguard clause; (Article 36)
- a specific internal market safeguard clause; (Article 37)
- a specific justice and home affairs safeguard clause, (Article
These safeguards are the same as the ones included in the
Accession Treaty of the Member States who joined on 1 May 2004.
What is the general economic safeguard clause?
The general economic safeguard clause is a traditional trade policy measure.
It aims to deal with adjustment difficulties which an economic sector or area in
either old or new Member States may experience as a result of accession. Member
States (new and old) may apply, during a period of three years after accession,
for authorisation to take protective measures in order to remedy such economic
difficulties. The European Commission may then decide such measures. They
can be decided only after accession and shall not entail frontier controls.
What is the internal market safeguard clause?
If Bulgaria or Romania fails to implement internal market legislation with a
cross border effect and this risks a serious breach in the functioning of the
internal market, the European Commission may take safeguard measures. It may do
so either upon its own initiative or on the request of a Member State.
Such safeguard measures may be taken until 3 years after accession, but they
may be applicable beyond that date until the situation is remedied. The European
Commission may modify, shorten or terminate the measures in response to
progress. If necessary, the measures may be decided prior to accession and
become applicable upon accession.
The internal market safeguard clause covers the four freedoms and other
sectoral policies such as competition, energy, transport, telecommunication,
agriculture and consumer and health protection (e.g. food safety).
The Commission will decide upon the measures on a case-by-case basis. The
measures may limit the application of the internal market or cross-border EU
policy in the given sector only as much as necessary to remedy the situation.
Priority will be given to measures which least disturb the functioning of the
internal market and, where appropriate, to the application of the existing
safeguards in the EU laws and standards. The internal market safeguard measure
applies exclusively to Bulgaria and Romania and not to the other Member States.
What is the justice and home affairs safeguard clause?
If there are serious, or imminent risks of serious shortcomings in Bulgaria
or Romania in the transposition or implementation of EU rules relating to mutual
recognition of judgements in criminal or civil law, the Commission may, after
consulting the Member States, take safeguard measures. It may do so either upon
its own initiative or on the request of a Member State.
Safeguard measures in this area may be taken until 3 years after accession,
but they may be applicable beyond that date until the situation is remedied.
Measures decided before accession would be applicable as from accession. If
necessary, the measures may be decided prior to accession and become applicable
The justice and home affairs safeguards are closely linked to the functioning
of the justice system. Examples of areas covered are insolvency proceedings,
proceedings on matrimonial matters and the matters of parental responsibility,
uncontested claims, or the European Arrest Warrant.
Concretely, the Commission could temporarily suspend specific rights of
Bulgaria and Romania under the EU laws and standards. For instance, it could
enable current Member States to refuse automatic recognition and
enforcement of certain civil and criminal judgement and arrest warrants in
either Romania or Bulgaria.
What are transitional measures?
The Commission may, for three years after accession, prevent the export of
Bulgarian or Romanian products which do not comply with EU veterinary,
phytosanitary and food safety rules, to the rest of the EU.
To take a concrete example, the export of live pigs and pig meat products of
Romania and Bulgaria to the rest of the EU will remain banned as long as the
animal disease classical swine fever has not been eradicated. For instance, food
safety in Europe can be guaranteed by the possibility to prevent the sale of
unsafe products in the internal market. The Commission may add further food
establishments to the list of those banned for three years after accession from
exporting to the rest of the EU after accession. Those establishments which do
not comply with EU standards can only sell their products on the domestic
markets. By the end of this period, these establishments either have to be
upgraded or close down.
In addition, there are also transitional measures which have been agreed
during the accession negotiations, laid down in the Accession Treaty. They
concern specific areas where either Bulgaria and Romania or the current Member
States are allowed to not fully apply the EU laws and standards during a limited
period after accession. These areas cover for example the free movement of
workers, acquisition of land, road transport and some aspects of the
environmental and agricultural EU laws and standards.
What are financial corrections on EU funds?
Upon accession, Bulgaria and Romania will benefit from substantial EU funds,
in particular structural and agricultural funds. The Commission will ensure that
these funds are properly managed. Any improper use of EU funds will lead to
financial corrections. These may consist of delayed disbursements, reduction on
future payments or recovery of funds.
For structural funds, the EU laws and standards provide four types of control
that may lead to financial corrections. Firstly, every Member State needs to
submit operational programmes which have to be approved by the Commission before
any payments can be made. Secondly, if Bulgaria or Romania do not have adequate
management, certification and audit authorities, no interim payments will be
made. Thirdly, the disbursement of funds for the programmes can be interrupted,
suspended or cancelled if the Commission suspects or detects cases of
irregularities or fraud including corrupt practices. Finally, financial
corrections can take place in case irregularities are found during the regular
For agricultural funds, Member States are obliged to have accredited
and efficient paying agencies to ensure the sound management and control of
agricultural expenditure. Secondly, Member States are also required to operate
an integrated administrative and Control system (IACS), for the direct payments
to farmers and parts of rural development expenditures, in order to avoid for
example fraudulent practices and irregular payments. Thirdly, if Member States
fail to operate such control systems properly, the Commission decides ex-post on
financial corrections through the annual financial controls. Finally, if the
Commission concludes that the funds are not spent according to the rules, the
Commission may suspend or temporarily reduce the payment of advances, on a
In addition to these mechanisms for agricultural funds applicable to any
Member State, the Commission has introduced specific rules for Bulgaria and
Romania to address the risk that their IACS will not function properly as from
accession. The funds covered by IACS present around 80% of the agricultural
funds and concern direct payments to farmers and rural development expenditure.
This additional mechanism gives the two countries time to complete the
necessary work on a properly functioning IACS. The Commission will closely
monitor the situation in 2007. In case of systemic problems with the management
of EU funds, the Commission will later in 2007 decide whether to withdraw
provisionally 25% of the payments covered by IACS. During the annual ex-post
controls, the Commission decides whether to maintain the reduction.
What is the cooperation and verification mechanism for the judiciary and
the fight against corruption?
The Commission will establish a mechanism to cooperate and verify progress
within the reform of the judiciary and in the fight against corruption and
organised crime after accession. This will be based on the Accession Treaty.
Both Bulgaria and Romania shall report regularly on progress in addressing
specific benchmarks. The first report should be submitted by 31 March 2007.
The Commission will provide internal and external expertise to cooperate and
provide guidance in the reform process and to verify progress. The Commission
will then report to the European Parliament and the Council by June on the
progress made by both countries in addressing the benchmarks. The Commission's
reports will assess whether the benchmarks have been met, need to be adjusted
and may request further reports on progress if necessary. The mechanism will
continue until the benchmarks have been met.
Should either country fail to address the benchmarks adequately, the
Commission will apply the safeguard measures of the Accession Treaty (see
The Commission will adopt a Decision implementing and
defining the modalities of this mechanism after consulting the Member States. It
will enter into force on 1 January 2007.