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GPKT Meeting Report 28
Transfrontier Co-operation between Kosovo, Serbia and Macedonia - the Gjilan/Gnjilane-Presevo-Kumanovo-Trgoviste (GPKT) Initiative

Achievements, Challenges and Next Steps
International Conference organised by the EastWest Institute in Co-operation with the Council of Europe, the Stability Pact for SEE and the municipalities of Gjilan/Gnjilane, Presevo, Kumanovo and Trgoviste

11th and 12th July, 2005 - Skopje, Macedonia

Transfrontier Co-operation in GPKT: Skopje Conference - July 2005

Contents:

I. Executive Summary
II. Background
III. Proceedings and General Conclusions
IV. Conference Agenda
V. List of Participants
 

I. Executive Summary

Just over two years after the full-scale launch of GPKT Project activity, with the aims of reviewing achievements to date and assessing remaining challenges, as well as promoting and gaining support for the project as a whole, the EastWest Institute organised, together with the Council of Europe and the Stability Pact for South Eastern Europe, the conference Transfrontier Co-operation in the Gjilan/Gnjilane-Presevo-Kumanovo-Trgoviste (GPKT) area between Kosovo, Serbia and Macedonia: Progress, Challenges and Next Steps, in Skopje on 11th and 12th July 2005.

The conference began with two Closed Working Sessions for selected participants in the morning of the first day: the focus of these two sessions was to present the research and analysis undertaken on economic development in the GPKT micro-region, and in particular to present the GPKT Integrated Development Policy Plan, based on empirical data analysis and successive consultation with local municipalities. Central and local government officials and international agency representatives agreed in the sessions that co-ordinated support would be essential to try and reverse the continuing ‘downward development spiral’ in the GPKT micro-region. The three respective governments all made commitments of support to the Plan, and next steps include a meeting of specific central-level representatives to facilitate co-ordination on decision-making to support development in the micro-region.

The Opening Plenary saw welcoming statements from all three governments, including from Macedonian Deputy Prime Minister Musa Xhaferri, and from the three host organisations, the East West Institute, Council of Europe and Stability Pact, and the four GPKT municipalities – Gjilan/Gnjilane, Presevo, Kumanovo and Trgoviste.

Plenary Session I focussed on discussing progress and continuing problems related to border management, and included different perspectives from border management experts, local mayors, government officials and international agency representatives. While it was clear much remained to be done to raise border management to best practice and European levels, and while it was stressed current systems need to take greater account of local community needs, speakers also agreed that progress had been made in recent years.

Plenary Session II addressed the conflict prevention and community security aspects of the GPKT initiative, and saw presentations from local representatives of the cross-border integration and capacity-building work undertaken through the Project’s community working groups in the fields of education, women’s rights, media and youth. Presentations also covered recent EWI research into conflict and development dynamics and local community policing. The substantial achievements of the GPKT Project in terms of crossborder trust and reconciliation building were highlighted, as was the need to continue to consolidate and safe-guard these achievements; speakers underlined the vital importance such work plays in providing a basis for integrated and sustainable economic development.

Plenary Session III allowed for presentations of the different international programmes supporting transfrontier co-operation, and included speakers from the Council of Europe, Stability Pact, OSCE, UNDP and European Commission: the session clearly demonstrated the growing awareness among the international community of the importance of crossborder co-operation for regional stability and development. The conference finished with a Closing Plenary, comprising statements from the Council of Europe and Stability Pact, and a concluding summary provided by EWI.

II. Conference Background: The Gjilan/Gnjilane-Presevo-Kumanovo-Trgoviste (GPKT) Project

In June 2002 the Mayors of 15 municipalities representing all nationalities and political persuasions from Kosovo, Serbia, Bulgaria and Macedonia met in Kumanovo, Macedonia and issued a joint declaration seeking closer political and economic co-operation. Responding to the needs presented by the local authorities in the ‘Kumanovo Memorandum of Co-operation’, and building on the Council of Europe’s and EastWest Institute’s work in supporting the establishment of the ‘Eurobalkans’ Euroregion in the Nis-Sofia-Skopje Triangle, the municipalities of the area, along with the EastWest Institute (EWI) and Misha Glenny’s organisation SEE Change 2004, launched a comprehensive project facilitating institutional transfrontier co-operation for the stabilisation and development of the Gjilan/Gnjilane-Presevo-Kumanovo (GPK) micro-region. In May 2004, it was furthermore decided by the GPK Mayors to engage the municipality of Trgoviste in Southern Serbia in the micro-region’s activities. The project has continued to receive the support of the Stability Pact for SEE and the Council of Europe.

The GPKT initiative is predicated upon the view that the instability and cross-border crime which has characterised the area comprising Gjilan/Gnjilane in Kosovo, Presevo and Trgoviste in southern Serbia, and Kumanovo in northern Macedonia, is a function more of the socio-economic isolation and underdevelopment of the three parts of this once vibrant market region, than of the often-cited ethnic conflict in the area. The project’s overarching aim is thus to further societal reform, inter-communal stability and economic development by tackling local problems via common transfrontier solutions and by facilitating the removal of the major obstacles to legitimate social and economic co-operation.

With activities in the field beginning in Spring 2003, cross-border co-operation in the GPKT micro-region has advanced substantially. Municipal co-ordination points have been established and support and facilitate a range of activity in various fields. Working Groups drawn from the four communities, and comprising representatives of all ethnic groups, have been established, and are engaging in regular co-operation activities and initiatives.

For exampl e:
The Working Group on Education formed the GPKT Education Committee in November 2004, and has been undertaking joint activities, such as the School Children’s Art Competition in Trgoviste in February 2005 (the first multi-ethnic activity to be held in the municipality), the GPKT Schools Summer Sports Competition in Presevo in May, and the four collaborative children’s theatre performances held in each GPKT town in June 2005.
The GPKT Working Group on Media has been working on joint documentary programme production, capacity-building for radio stations and two cross-border radio ‘bridge’ programmes, the establishment of a website containing news archives from stations across the micro-region, and co-ordination and training to facilitate greater information-sharing among GPKT media.
The Working Group on Youth established itself as the GPKT Youth Council in December 2004, and is enthusiastically moving ahead with several activities, including the first crossborder multi-lingual youth publication in the region, ‘Youth Bridges’, an art exhibition, sight-seeing picnic in Trgoviste, HIV/AIDS awareness training and concert, and the 2005 summer camp (First Aid and Team-building training).
The GPKT Working Group on Women’s Rights and Gender Issues has undertaken a Petition for Peace, collecting over 6,600 signatures in March 2005, and following advocacy training, implemented a multi-lingual TV panel debate on women and decision-making, and a community advocacy meeting on services for children with special needs in Presevo.

2005 has also seen the start of the integrated development planning process for GPKT, which has built on the empirical research undertaken by the European Stability Initiative (ESI) to produce through consultation with the municipalities an Integrated Development Policy Plan for the micro-region, along with proposals for key infrastructure projects.

Capacity building for all Working Groups and key municipal representatives has been and will continue to be implemented, including formal training, experience sharing and strategic planning. In addition, in order to facilitate ‘learning by doing’ and establish norms of cooperation, cross-border micro grants have been disbursed in two rounds, leading to working partnerships between NGOs on all sides of the borders in GPKT and the implementation of various key projects benefiting GPKT communities.

Policy work has progressed with the publication of expert-authored research on border management, conflict & development, gender mechanisms in local government, and opportunities for youth policy engagement in the micro-region. High-level meetings in both regional national capitals and in Brussels for GPKT representatives have also advanced the needs of the micro-region on policy- and decision-making agendas.

Conference Objectives

Just over two years after the full-scale launch of GPKT Project activity, timing was appropriate for a review of achievements to date and a look ahead to assess remaining barriers as well as opportunities and policy directions for project implementers, partners and decision-makers from the relevant regional governments and international agencies.

EWI therefore organised, together with the Council of Europe and the Stability Pact for South Eastern Europe, the conference Transfrontier Co-operation in the Gjilan/Gnjilane-Presevo-Kumanovo-Trgoviste (GPKT) area between Kosovo, Serbia and Macedonia: Progress, Challenges and Next Steps, in Skopje on 11th and 12th July 2005.

T he three main goals of the conference were:
To promote and raise awareness of the significant results achieved to date through systematic transfrontier co-operation in the GPKT micro-region as a potential model for inter-community stabilisation and development.
To present the critical remaining needs of this strategically important area and to seek further support from relevant national governments and international organisations for the Project’s work on building sustainable and local cross-border capacities and practices. In addition, to highlight international programmes and frameworks available to further facilitate co-operation in the region, from the Council of Europe’s Conventions on Transfrontier Co-operation to the EU’s/EAR’s and UNDP’s development programmes.
To advocate, and gain support for the implementation of, specific policy directions in key areas related to the Project’s success, such as integrated development planning, conflict management and community development activities, and the improvement of border m anagement systems.

III. Proceedings and General Conclusions

The conference began with two Closed Working Sessions in the morning of the first day, involving selected participants and designed both to allow for the presentation to a specific target audience of the substantial work undertaken on economic development research, assessment and strategic planning for the GPKT micro-region, and also to gather support for co-ordinated efforts from central governments and international agencies. The Opening Plenary was scheduled in the early afternoon, where all conference participants joined for statements of welcome and introduction, and was followed by Plenary Session I on border management issues. The second day began with Plenary Session II on community development and conflict prevention issues in GPKT, followed by Plenary Session III on international programmes supporting transfrontier co-operation, and finally the Closing Plenary at the end of the second morning, in which the three host organisations made concluding statements.
 

Closed Working Session I

Integrated Development Planning in GPKT – Central Government Support for Co-ordinated Progress

Chaired by Mr. Tom Thorogood, Head of the UNDP’s Vranje office in southern Serbia, and Ms. Chrissie Hirst, the EWI GPKT Project Manager, Closed Working Session I included expert presentations on economic development, the local municipalities, and relevant representatives from the Kosovo, Macedonian and
Serbian central authorities.

The session began with a short opening statement from Ms. Hirst, who welcomed all participants, and outlined the aim of the session: to provide an opportunity for key central government officials (from the Ministries of Economy, Infrastructure, Transport, etc.) to be briefed on the findings and recommendations of the experts working on development planning in GPKT, in particular the newly finalised GPKT Integrated Development Policy Plan. She stressed that this first closed working session was designed to encourage informal and frank discussion on the Integrated Development Policy Plan, and the roles and contributions that would be needed from the respective central governments.

Mr. Kristof Bender then presented the research undertaken on the micro-region by the European Stability Initiative (ESI), an in-depth collection and analysis of empirical economic data that began in 2004.1 Giving an overview of common trends in the micro-region, Mr. Bender noted the general return to subsistence farming, the collapse of the majority of socially-owned enterprises (SOEs) and manufacturing bases, and the resultant ‘economic catastrophe’ experienced across the micro-region. He noted that the great majority of private sector enterprise was focussed on the service sector, which is not in itself creating any new jobs or capital, and underlined that the municipalities of GPKT alone cannot generate the resources to deal with this problem effectively.

Mr. Bender outlined various obstacles to progress, including: the lack of information available; a shortage of funds; strictly national development programmes, which do not take account of cross-border dynamics and economic and trade potential; fragmented development strategies; delayed privatisation processes; and little work on, or prioritisation of, rural development. He emphasised that EU-style cross-border programmes will be needed, and while political issues still pose constraints in this area, an EU-style cross-border co-operation approach will be essential to achieve sustainable development over the longer term, both to access upcoming resources for development and to facilitate European integration.

Mr. Frank Schwartze, of INSAR consulting firm, continued the session with a presentation of the work he and his team have been undertaking with EWI in the micro-region since January 2005. Building on the research undertaken by ESI, and with additional local information gathering and consultation in all municipalities,2 an Integrated Development Policy Plan, including specific recommendations and proposals for priority areas, has been produced for GPKT.3

Mr. Schwartze noted the dire economic situation in GPKT, the continuing ‘downward development spiral’ affecting the micro-region, and the real threat that parts of the microregion will become even more marginalised and peripheral. He also noted that continued economic decline could well negatively impact on political and social stability in the region, and emphasised that equitable economic development will be fundamental to the positive, sustainable development of GPKT.

Mr. Schwartze noted that the Integrated Development Policy Plan is aimed at reducing the marginalisation of the GPKT towns, and among the priority areas for action it outlines are: increased training and capacity building for municipalities; small business development assistance; and, greater investment into hard infrastructure and improvement of road linkages and border crossing points, in order to facilitate trade and maximise the GPKT proximity to Corridor 10. Mr. Schwartze noted that central government support would be crucial for real progress, and advocated for the establishment of an advisory board composed of central government representatives with competencies in the relevant areas of infrastructure, economic relations, transport, etc.: this board would be able to facilitate coordination between central and local government and also between the three central authorities of the micro-region.

Short presentations from the four GPKT municipalities followed. Mayor Zoran Damjanovski of Kumanovo expressed the full support of Kumanovo municipality for the Plan, recalling the previous close integration of the towns in the micro-region, and noting that the Plan provided hope for the future. Mayor Riza Halimi of Presevo stressed that central government support for the Plan was essential, as many decisions key to progress on development require central-level authority (e.g. the opening of new border crossing points and development of regional traffic infrastructure). He also underlined that it is essential to overcome any perceptions that support for development in GPKT will benefit only ethnic Albanians in the micro-region, noting the many ethnic Serb and Macedonian residents who would benefit from improved cross-border access and increased economic development.

Mayor Xhemail Hyseni of Gjilan/Gnjilane highlighted the progress achieved so far in the GPKT Project, but also underlined that there are remaining obstacles to continued progress on cross-border co-operation that can only be tackled at a central level, and which need to be addressed for continued and sustainable progress on cross-border co-operation and development of the four municipalities. Vice-President Milorad Nikolic of Trgoviste, echoing the previous mayoral statements in support of the Plan, stressed the challenge to Trgoviste of the former border crossing closure, which has significantly reduced the municipality’s chances of developing tourism, agricultural production and other sectors.

Discussion then followed, with a focus on the proposal for central government support to be co-ordinated through some form of advisory body or group.

Minister Rizvan Sulejmani, the Macedonian Minister for Local Self-Government, welcomed the chance to discuss concrete issues, and outlined how the current transfer of competencies will provide substantial opportunities for Macedonian municipalities to engage in local-level cross-border co-operation. He also underlined the Macedonian government’s support for the GPKT initiative, and stressed that the central governments involved should work to facilitate the initiative, preventing bureaucratic obstacles and providing greater opportunities for local communities to engage in deeper co-operation across borders.

Ambassador Jovan Tegovski, Macedonian National Co-ordinator of the Stability Pact for South Eastern Europe, welcomed the commitment from EWI to the micro-region, and, noting the full commitment of the Macedonian Government to the process of regional cooperation as one of the strategic goals of EU and NATO membership, stressed the vital importance of such cross-border exchange and co-operation projects. He also noted that the question of re-opening the Miratovac (Serbia)-Lojane ( Macedonia) border crossing had the full support of the Macedonian Government, and that negotiations would begin very soon between the Serbian and Macedonian authorities.

General Ninoslav Krstic, Vice-President of the Co-ordination Body for Southern Serbia, warmly welcomed the initiative and the Plan presented by Mr. Schwartze, and gave his support to the project, but warned participants that in his opinion support from the relevant central authorities would be crucial for a chance of real success.

Minister Qemail Ahmeti, the Kosovo Minister for Transport & Telecommunications, noted that his Ministry and Government are extremely interested in the Plan and the GPKT project in general. He also stressed the need for real discussion between the governments involved, particularly as the question of Kosovo’s status remains an inhibiting factor for reaching agreement on and co-ordinating practicalities (of road links, border crossings, etc.) that will be crucial for longer-term progress on economic development: he emphasised Kosovo central level support for the initiative, and that Kosovo ministries are ready and open for discussion on co-ordination.

Ms. Sasha Havlicek, Director of EWI’s Centre for Border Co-operation, provided a summary of the session’s discussion, noting participants’ strong political commitment to coordinated support for economic development and the GPKT Integrated Development Policy Plan, and the overwhelming agreement that such central–level support and co-ordination is crucial to the success of such efforts. She confirmed that EWI would consult further with the respective governments to determine representation on a co-ordinative body of some sort, and would aim to hold a meeting for this group in the next three to four months.
 

Closed Working Session II

Integrated Development Planning in GPKT - Needs and Priorities

The conference continued with Closed Working Session II, comprising all participants from the first session, with the addition of representatives of international agencies and organisations working on economic and infrastructure development in the micro-region.
 

After a brief introduction and summary of the first session’s conclusions by Chrissie Hirst, Mayor Hyseni provided a short introduction to the situation from the
local perspective: he noted the common characteristics of the micro-region, including the history of under-development and the negative impact of political developments and new borders in recent years, and stressed the need for policy-level support for increased access and cross-border economic links.

Mr. Kristof Bender then provided a recap of his findings for the new participants, noting again the very serious level of underdevelopment and economic decline, and underlining the need for international support and donor co-ordination if real progress is to be achieved.

Mr. Frank Schwartze followed this with a short overview of the GPKT Integrated Development Policy Plan, noting the limitations of the existing national and funding programmes for co-ordinated development which includes neighbouring cross-border areas; he also stressed that this Plan does not attempt to replace in any way existing national or local level development strategies, and is aimed at complementing these strategies through addressing the cross-border aspects of economic development.

During the discussion that followed, Mayor Halimi reiterated again the need for substantial support to ensure that progress can be achieved in economic development in the region, and noted that at a minimum in the short-term, efforts should be undertaken to return the level of economic life to the level of a few years before. Mr. Schwartze echoed this point, and noted that government support and co-operation among governments will be essential, and also that the regional governments have not done enough in his opinion to stimulate and support economic development. Mr. Florim Grajqevci, Adviser to the Minister, noted that the Kosovo Ministry of Transport & Telecommunications is planning to support infrastructure linking up with the Stancic crossing in the next two years, and presented participants with plans for the development of the infrastructure network in the area, including the development of railway links (which at present are at a low level, but which have the potential to support trans-Balkan and trans-European links).

Mr. Dragan Ristovski presented a short summary of UNDP’s activities in the region, and was followed by Mr. Thilo Moeller, representing the European Agency for Reconstruction (EAR) Pristina office, who noted that while the Agency is currently in a planning stage for 2006, infrastructure and capacity-building will be a strong focus. He confirmed that EAR would most definitely take the recommendations and strategic foci of the GPKT Integrated Development Policy Plan into account in their planning, and welcomed the meeting and discussion of plans as a very useful co-ordination initiative.

Ms. Vesna Djordjevic, the Southern Serbia Co-ordinator for Enterprise plc. and the Regional Economic & Entrepreneurship Development Agency, explained that her team had been involved in preparing strategy documents for southern Serbia that have many similarities and shared action points with the GPKT Integrated Development Policy Plan: she noted that good opportunities to co-ordinate existed, and that she looked forward to further collaborative meetings and discussion.

Ms. Havlicek drew the meeting to a close with a short summary of participants’ contributions and commitments, including the next step initiative planned for the
establishment of a working level ministerial advisory group, a first meeting of which EWI would aim to facilitate in the Autumn.
 

Opening Plenary

The role of Transfrontier Co-operation in fostering Local Democracy, Stability and Development

The formal commencement of the conference followed with the Opening Plenary session. The session Chair, Ms. Havlicek, opened with a brief summary of the origins of and progress on cross-border co-operation through the GPKT Project, and thanked the conference co-hosts – the Council of Europe and Stability Pact for South Eastern Europe.

Macedonian Deputy Prime Minister Musa Xhaferri then made a welcoming presentation, applauding the GPKT Project as an excellent and important initiative. He expressed his hope that other municipalities would follow the example set by the GPKT micro-region, noting that with the new Macedonian laws on de-centralisation, municipalities would have the mandate and power to engage in similar transfrontier co-operation, which he saw as an important catalyst for economic regional development. Advocating that the central governments involved should support cross-border co-operation in a concrete manner, and offer solid frameworks for local government to engage in transfrontier activities and collaboration, Minister Xhaferri also underlined that “we have made the first steps, but there need to be more steps forward” on cross-border co-operation.

Dr. Judy Batt, representing the Council of Europe (CoE), opened by noting that the Western Balkans is a priority area for CoE support for cross-border co-operation. She noted that reviving connections across the borders is particularly important in this region, underlining the value of local initiatives, which are often ahead of progress at the central level. From the perspective of the CoE, cross-border co-operation is viewed as a channel for local democracy and as demonstrating a return to Europe, and therefore should be valued as a way to foster development and economic and social progress, with local initiatives in this sphere a particularly valuable complement to higher-level moves towards European integration.

Mr. Goran Svilanovic, Chair of the Stability Pact’s Working Table I, began his presentation by noting that EU accession framed much of the policy direction in the South East European region, and that cross-border co-operation provides a crucial basis for this. The GPKT microregion provides a good example of positive efforts to strengthen leadership at the local level, and Mr. Svilanovic called on the relevant governments and institutions involved to support the initiative, stating that more progress is needed to safeguard achievements to date, and that economic development, and the reconciliation which is necessary to support sustainable economic development, will be a key priority for the micro-region in the coming years.

The Macedonian Minister for Local Self-Government Rizvan Sulejamani, made a short welcoming presentation, noting the increased potential for transfrontier co-operation following Macedonian de-centralisation and border reform, and the potential benefits of improved integration and regional relations. He congratulated the GPKT initiative on its progress to date, commenting that this part of the Balkans has demonstrated that it understands the future lies in co-operation and communication.

Gen. Ninoslav Krstic then thanked the participants on behalf of the Co-ordination Body for Southern Serbia, explaining that the Body had been established to address local problems, and that its reformed functions now recognise that progress on economic development is a vital component of a positive future in the area. He noted that the Body is strongly supportive of the GPKT development planning initiative and the Project as whole, and that his personal proposal to the central level following the conference will be to push for the opening of an additional small border crossing for both Presevo and Trgoviste municipalities (via Miratovac-Lojane to assist Presevo, and with Kriva Palanka to assist Trgoviste). He also proposed that following the discussions that morning, in his opinion the
inclusion of the Municipality of Trgoviste in the Co-ordination Body’s remit would be a positive step, bearing in mind the location and development needs of the municipality and the links already developed with Presevo through the GPKT Project.

Mayor Damjanovski then made a short presentation, underlining the strategic potential of the GPKT micro-region’s location in relation to trans-European corridors 8 and 10, and stressing the invaluable opportunities this offers for development both of the GPKT towns and the broader region. Vice-President Nikolic expressed his thanks and welcome on behalf of the Mayor of Trgoviste, and stressed the serious needs for support for economic and community development in the municipality. Mayor Halimi welcomed participants, describing the GPKT Project as an ideal in the process of being accomplished: he stressed that in post-conflict societies social and community links are very important, but that economic development is equally crucial to stability, and requires support and assistance from the central levels. Mayor Hyseni emphasised that the GPKT municipalities are all municipalities that have been marginalised in some way, and that the struggle against this and for a return to progress on social and economic development is a crucial one, which requires the support of high-level decision makers and donors.

Plenary Session I

Border Regimes and Management – Progress and Remaining Challenges facing GPKT

Chaired by Mr. Goran Svilanovic, Chair of the Stability Pact’s Working Table I, Plenary Session I began with a presentation by Mr. Henry Bolton, the author of the GPKT Policy Brief Border Management in the Kosovo-Southern Serbia- Macedonia Vortex: a Local Perspective.

Mr. Bolton began his presentation of the Brief’s findings with an explanation of the main aims of good border management: to facilitate legitimate movement and trade, while preventing illegal activities and crime, thereby supporting economic development and stability. He stressed that border management which is overly oppressive will fail to achieve these goals, as it will be resented and lead to counter-productive reactions from local communities; however, if border management fails to provide adequate security and controls, then there are serious implications and results for local and regional communities in terms of drug, arms, people trafficking, etc.

Remarking that organised crime is prolific in the micro-region, Mr. Bolton noted that luckily this is mainly transit trafficking and does not affect local communities to a great extent, although it does mean that there is distrust in Western Europe of the regional border controls in place – and this has obvious implications for European accession, as best practice integrated border management (IBM) is essential to achieve European standards and accession. Mr. Bolton noted that border management in the region falls far short of best practice standards, and that there is an emphasis on security rather than management: communities are a key point in this regard, and positive mutual communication between communities and border authorities is needed to achieve fully integrated and successful border management.

He highlighted the vital importance of good communication and co-ordination, real integration, among both the different forces, agencies and communities on a national level, and among different national forces across borders. He underlined the pressing need for policies and strategies to be both developed, put in place and also implemented, as a framework for co-ordinated and effective action is needed. Mr. Bolton concluded with the warning that if border management systems in the micro-region do not improve, and continue to inconvenience local communities and pose obstacles to economic development, then tensions surrounding border controls are likely to grow and create more problems for the agencies responsible.

Mayor Halimi spoke next, and underlined the point that local communities are not supporting the grey economic activity in the region. He also stressed that Presevo’s communities have a pressing need for increased cross-border access to Macedonia, and that the opening of a local border crossing (or malo granicni prelaz) at Miratovac-Lojane would solve many problems; he noted that while a community bus service across the border (a recommendation in the Policy Brief on GPKT border management) was a good idea, this would only solve part of the problem.

Mr. Shkumbin Arifi of Catholic Relief Services (CRS) then presented the work that CRS has been undertaking on co-operation between Gjilan/Gnjilane and Kumanovo, as part of their regional Cross-border Co-operation and Reconciliation Programme. For almost a year CRS has been working on border procedures, and as part of this work has implemented a survey of cross-border land ownership, which is being finalised in a database format that will be presented to both municipalities at an upcoming roundtable. CRS activities are aimed at increasing contacts and information and encouraging more cross-border trade between the two towns: public awareness raising will be undertaken to more fully inform the communities of border crossing procedures and regulations.

Mr. Zoran Pavlovski of Kumanovo Municipality then spoke in place of Mayor Damjanovksi about the need for several crossing points and the problem of agricultural property divided by borders. He recognised the improvement since the border police had taken control, noting that co-operation with the police force is now easier, and supported Mr. Bolton’s point that communication and co-operation between local communities and border management agencies is essential.

Short presentations from designated respondents followed:

Mr. Saso Kocev, Chief Inspector at the Macedonian Ministry of Internal Affairs, began his presentation with a note that the Ministry gives its full support to the GPKT Project, and reminded participants that the Macedonian de-centralisation processes ongoing also affect his Ministry, and lend added importance to the need for full establishment and proper functioning of the border police service. On cross-border liaison, he noted that communication has been established between Macedonian agencies and UNMIK/KFOR, and between the Serbian and Macedonian border authorities, while admitting that coordination was poor along the green border. The progress on handover of border control to the new border police is combined with legislative reform and additional training, and Mr. Kocev concluded by noting that a working version of the National Action Plan for IBM exists and its implementation is a priority for the Macedonian Government.

Mr. Dusko Marinkovic, Assistant Director General of the Serbian Customs & Legal Affairs Directory, spoke next, underlining from the start that a primary aim of his government in border management is to facilitate a fast flow of goods and passengers, in line with EWI’s recommendations and best practice principles of IBM. He also noted however, that to achieve this Serbian agencies need capacity building, human resources and improved procedures. At present the process of producing a National Action Plan for IBM, one of the conditions for EU entry, is moving slowly, but Mr. Marinkovic also noted that the Serbian Customs Service achieved the conclusion of protocols with the Macedonian Customs Agency in 2003, and with UNMIK in 2005, and is working to develop further cross-border co-operation.

Gen. Ninoslav Krstic then presented, highlighting the essential balance to be struck in border management between the needs of the local communities and the needs of the states involved. He agreed that Mr. Bolton had made fair comments in relation to the problems of crime and corruption, and that issues of sovereignty were involved, but expressed his feeling that support to border agencies and communities with a basis in clear laws and procedures was the solution. On the proposal for opening a local border crossing, or malo granicni prelaz, between Miratovac and Lojane, Gen. Krstic noted that while he did not necessarily support the opening of another crossing so close to an existing international border crossing, he felt it was important that local citizens had reasonable access, and that a system of ID cards or similar should be investigated to facilitate this. He also recognised the problems of communication and current lack of a fully integrated border management system, noting that more needed to be done, but that efforts were ongoing from the Serbian side.

A presentation from Mr. Dimitry Zagrotskiy, Chief of Operations of the UNMIK Border and Boundary Police, followed. Giving an overview of the UNMIK systems in place, Mr. Zagrotskiy outlined the functional crossing points in Kosovo, and the role of KFOR in policing the green border. He noted that the division of roles between KFOR and UNMIK did pose some problems, in particular the lack of any collective intelligence work, as UNMIK’s responsibility for criminal cases is limited to border crossing points and the Police do not have information on illegal crossings in general or those interdicted by KFOR. UNMIK does have responsibility for the development of IBM in Kosovo, and has been communicating with Macedonian and Serbian authorities to co-ordinate and exchange information: the introduction of new tracking systems will improve the situation, and should be completed by end 2005.

The final respondent, Mr. Paul Partner, Programme Manager for Police and Integrated Border Management with EAR Skopje, outlined that EAR is currently implementing projects on behalf of the Government and EC, and financial support for IBM is available through the CARDS and PHARE programmes. Mr. Partner emphasised the need to assist governments in achieving their commitments and improving their border management, noting that to date, in Macedonia alone over 60 million Euro had been given to support police-led IBM and customs-related border functions. While there are definite indicators of progress, with Macedonia the first country in the region to adopt a National Action Plan and undertake the transition to police responsibility for the border, he agreed that much of Mr. Bolton’s criticism still stands and more remains to be done.

Plenary Session II

Community Development and Conflict Prevention – Achievement and Perspectives in Transfrontier Municipal Development Planning, Youth, Education, Media and Women’s Co-operation

Chaired by Dr. Judy Batt, the third plenary session opened the second day of the conference, and, as Dr. Batt noted in her brief introduction, focussed on the local personal contacts that are a vital defence of the peacebuilding achievements to date against de-stabilising events, and represent the genuine and common interests of the communities themselves.

Mayor Hyseni presented first, outlining municipal crime prevention initiatives in Gjilan/Gnjilane, including the community council and task forces, which engage all relevant stakeholders to address local security issues for the community. He underlined the philosophy critical to these efforts, namely that an institution has the capacity to resolve problems and violence is unnecessary. Mayor Halimi followed, noting first that from the perspective of Presevo the meetings and activities implemented under the GPKT Project had resulted in great progress on multi-ethnic relations. Stressing the importance of looking forward, focussing on co-operation and increasing the level of freedom people have, he emphasised that communities should focus on developing values that will in themselves
provide deterrents to grey or black market activities.

Mr. Halim Isufi, Director of Musa Zajmi School in Gjilan/Gnjilane, spoke next, giving an overview of activities undertaken by the GPKT Education Committee. Despite initial nervousness and reluctance experienced by pupils, teachers or parents, he noted that very positive activities have been implemented, and through them confidence and a basis for further activity has been established, with interaction between the children and their enjoyment of the activity as the main goal. He remarked that following the Summer Sports Competition in Presevo, many of the participating pupils in his school were asking when the next event would be held. Looking forward to the next cycle of EWI GPKT activity, Mr. Isufi advocated for longer meetings between the different school pupils to encourage the development of stronger relationships, and continuing and deeper engagement with the GPKT Project and peer schools across the borders.

Mr. Nexhat Aqifi of the Kumanovo-based TV Festa followed, opening his presentation with the observation that following a year’s activity, real results can be seen within the GPKT Media Working Group, and that the TV stations of the micro-region, and more recently radio stations, now have much stronger cross-border co-operation than when the initiative first began. Describing the joint documentaries undertaken, he underlined that taboos of multi-lingual programming and reporting on different communities have been tackled. The recently established GPKT website will provide an important resource for GPKT media, and Mr. Aqifi expressed his hope that the site would continue to develop, and his support for further improved communication and integration among the Working Group members.

Mr. Stefan Manevski, a member of the GPKT Youth Council, outlined the development of the Council from its establishment in December 2004 from the GPKT Youth Working Group. With the aims of uniting youth from the region, the Council has undertaken various activities – ranging from a multi-lingual youth magazine to art and sport activities and various training events. Mr. Manevski stressed that it is only through bringing young people together that you will ensure economic, business and governance links across borders in the future: he emphasised that at the beginning of GPKT activities, youth first focussed on the differences between each other, and now are looking at the similarities. He concluded with the statement that the GPKT Youth Council should be viewed as a bridge of understanding, and that while the divisions between young people in the micro-region have begun to disappear, more support is needed to expand and broaden work in order to safeguard and extend the achievements so far.

Mr. Frank Schwartze spoke next, giving a short overview of the plans discussed in the two closed sessions on the first day, and the research and consultation that had resulted in the GPKT Integrated Development Plan. He noted that the Plan developed for GPKT highlights projects that make the most sense for the cross-border region, with three main priority areas: municipal capacity and knowledge building; improved co-ordination between the municipalities and business communities; and improved infrastructure, to allow for easier physical linkages between the four towns. Mr. Schwartze highlighted that the need is not simply for economic development in the micro-region, but crucially for equitable development. Mr. Schwartze stressed that the two main pre-conditions for development and integration are inter-community trust and improved infrastructure, without which economic improvements in the micro-region will be slow.

Ms. Chrissie Hirst followed: noting that the very recent post-conflict context of the GPKT Project sets it apart from other EWI transfrontier co-operation initiatives, she underlined the Project’s innovative approach of utilising cross-border co-operation as a means of achieving the fundamental aims of stability and conflict prevention. While much has been achieved in the micro-region, Ms. Hirst stressed a realistic approach is necessary: not all conflict-related problems are over, substantial mistrust and divisions between communities remain, and for each positive outcome of a successful GPKT meeting or activity, a substantial amount of preparation and trust-building is required beforehand. She also underlined that improved relations between different communities and ethnicities is essential for long-term, genuine development to be sustainable, and a combined approach of trust building, reconciliation, capacity-building and economic facilitation is needed. Introducing and summarising the main recommendations from the GPKT Policy Brief by Andrew Sherriff, Ways Forward for Conflict Prevention and Development in GPKT, Ms. Hirst also emphasised the fact that the upcoming question of Kosovo’s final status will have inevitable repercussions, whatever the final outcome agreed. A primary goal of the upcoming second GPKT Project cycle will be to consolidate and protect progress and to try and minimise any negative impact political developments may have on cross-border relations and activities.

The final speaker, Mr. Teofil Parasca, Community Policing Trainer with the OSCE in Kumanovo, provided an overview of multi-ethnic policing from the start of these activities in 2001. Following recruitment and training since 2001, and using tools such as Community Advisory Groups, the police are now meeting with community representatives regularly to address problems; a confidence-building approach to facilitate inter-ethnic dialogue is proving successful in Kumanovo, as are similar steps in southern Serbia. Mr. Parasca noted the potential for improved communication between municipal police forces across the GPKT micro-region, and, while highlighting that much remained to be done, expressed his hope that with support from the municipalities, police and communities would be in a position to openly work together to increase stability.

Dr. Batt chaired the brief question & answer session that followed, and as unfortunately the scheduled speaker from the GPKT Women’s Working Group had been unable to present, the first intervention from the floor was Mrs. Nevenka Stojilkovic. Mrs. Stojilkovic described the Group’s meetings and collaborative activities, in particular the GPKT Women’s Petition for Peace, for which Working Group volunteers collected over 6,650 signatures in late February and early March 2005, and the June multi-lingual televised panel discussion and community advocacy meeting. Mrs. Stojilkovic underlined the success of the initiative in encouraging openness towards other communities and groups, noting that the region went through a period when societies were “closed”, and that now the situation is changing and people are beginning to be more open to co-operation.

Plenary Session III

International Programmes Fostering Transfrontier Co-operation and Local Development

Chaired by Ms. Sasha Havlicek, the third plenary session began with a presentation from Dr. Judy Batt.

Opening with an overview of the Council of Europe (CoE) and its post-conflict mission since 1948, Dr. Batt noted that local democracy and transfrontier cooperation are primary goals of the institution. She described the role of the CoE in capacity-building of government officials, and the support for cross-border
co-operation provided by the CoE Committee on Transfrontier Co-operation as well as other resources and expertise, such as the body of legal experts available to assist governments on definition of statutes and legal issues. This expert advisory role of the CoE also extends to local democracy, where for processes such as de-centralisation points of contact exist to provide for useful and relevant expertise. Dr. Batt underlined the fact that the CoE also serves as an exchange hub for experiences from new member states who have gone through similar reform processes during recent accession, and who have accumulated recent and very relevant expertise on transfrontier co-operation from their own initiatives.

Mrs. Talia Boati, Expert within Working Table I of the Stability Pact for SEE, spoke next, describing the role of the Stability Pact since its establishment in 1999. The Pact views transfrontier co-operation, in particular local level co-operation between local municipalities across borders, as a key mechanism for progress towards sustainable peace and a crucial underpinning for stability and development in the broader region. Alongside the need for further efforts to facilitate easier movement of people and allow for greater social and cultural exchange, and she emphasised that peace-building efforts are essential to support trade and economic progress. Mrs. Boati expressed the Stability Pact’s full support for EWI’s GPKT and other Balkan cross-border initiatives, and concluded by underlining the paramount importance of cross-border co-operation activities, which send a clear signal that true reconciliation can be achieved across the region.

Mr. Martin Brooks, the OSCE Co-ordinator for South Serbia, followed, outlining the OSCE’s activities in the area. Efforts have concentrated on peace-building measures and institutional reform and integration, in particular police reform and establishment of the multi-ethnic police element, as well as support to the judiciary, education and media. Support is also being provided to the Co-ordination Body for South Serbia, which is now developing and taking on responsibility for socio-economic issues. Mr. Brooks underlined that while economic development is important for improving stability and long-term peace, efforts will remain frail if discrimination and marginalisation are not addressed: it is also essential that economic development benefits all groups, otherwise development will itself feed divisions. The OSCE’s specific contributions to cross-border co-operation are primarily in the field of border management and community policing activities, and Mr. Brooks’ advice for progress was that care should be taken to avoid creating complex or hard-to-operate models for channelling co-operation.

Mr. Tom Thorogood followed, providing an overview of UNDP’s activities in the field. With a presence in a number of municipalities in South Serbia, UNDP targets local government, economic development, infrastructure and agriculture, and he noted the significant success which had been achieved in the post-conflict phase to date. UNDP will continue to maintain a focus on local government, and will be encouraging greater cooperation between municipalities as substantial improvement is needed in this area. With regard to cross-border co-operation, the UNDP is very much supportive and is exploring this area and external funding sources, with the EU likely to be the main external donor. Mr. Thorogood concluded by re-iterating Mr. Brooks with advice from the field perspective: keep efforts at co-ordination and co-operation simple and practical, and avoid unrealistic expectations of success in a complex context.

The final pannelist, Mr. Vassilis Maragos, Deputy Head Counsellor with the European Commission in Skopje, provided a brief picture of the ongoing stabilisation and association processes, and noted that cross-border co-operation is one of the main objectives of the CARDS funding programme. Funding mechanisms will be altered in the future towards a more regional framework, with investment for pre-accession countries and the Neighbourhood instrument; future funding instruments are also planned to allow for the support of cross-border programmes between candidate countries. Noting the complexity of transfrontier co-operation, Mr. Maragos underlined that much will depend on the capacity of the implementing agencies and stressed the need to remain practical - he applauded the long-standing work of EWI in this regard, and the value of projects such as GPKT in leading the way towards the regional co-operation necessary for full European integration.

The main points from the discussion that followed included brief interventions from Ms. Ewa Tyruk from UNMIK, and Ms. Isabelle Cave from the Gjilan/Gnjilane Local Democracy Agency, who provided information on their respective activities in relation to the GPKT Project. Mr. Fazri Zanune, Advisor to the Mayor of Lipkovo and part of the Kumanovo delegation, underlined the municipality’s interest in being included in GPKT activities, discussions and planning, particularly in terms of economic development.

Mayor Halimi also contributed, stressing the need for financial support for the microregion’s activities, and Mayor Hyseni echoed this, expressing his belief that despite the substantial obstacles, the GPKT micro-region is not an experiment that will fail, although more support and investment will be essential if the full potential of the project is to be achieved. Finally, Ms. Elisabeta Cvetkovska, the GPKT Municipal Co-ordinator for Kumanovo, concluded the discussion, describing the hard work that has gone into the GPKT Project over the last three years, the vital role played by EWI, and her view that with support from central government and donors to help address the remaining obstacles of cross-border movement and development, co-operation across the micro-region will develop further.

Closing Plenary

GPKT Going Forward – Conclusions and Commitments

With the continuing chairmanship of Ms. Sasha Havlicek, the concluding plenary began with a short presentation from Mrs. Talia Boati of the Stability Pact for SEE. Emphasising the Stability Pact’s continuing support for the GPKT Project, Mrs. Boati also highlighted the role of the Pact’s Steering Committee on Local Democracy and Cross-border Co-operation. She expressed the personal support of Pact representatives Mr. Goran Svilanovic and Ambassador Bieler, who had been very impressed by activities on the ground following their recent trip to the field, and concluded by emphasising that the Stability Pact will be very happy to assist progress through helping to address specific policy obstacles to cross-border co-operation in Brussels.

Dr. Judy Batt echoed these words, noting that she very much looked forward to seeing the development of activities within GPKT, and that the Council of Europe would remain focussed on supporting this initiative and the field of transfrontier co-operation in general.

Ms. Sasha Havlicek then provided the concluding presentation for the conference. The first morning’s closed sessions had provided a forum for presentation of economic development analysis and recommendations, in particular for the GPKT Integrated Development Policy Plan, a ‘road map’ for development of the area, which had received expressions of support from central government representatives and for which EWI would work to establish an advisory body to facilitate central government co-ordination. In relation to reviewing activities and progress to date, the second plenary session had provided for a full and frank discussion on the continuing challenges of the border regimes in place and the need to increase co-ordination and communication between the different agencies involved. Plenary Session II had allowed for review and discussion of the substantial progress on integrating the four communities achieved through the four GPKT Working Groups, and Ms. Havlicek noted that some of the most pioneering activities fell within this bracket of Project activities, also underlining the crucial role this work has played in providing a basis from which to work on integrated economic development.

She highlighted the increasing awareness evident within the international community of the need to support cross-border co-operation in South Eastern Europe, and welcomed the presentations from the third plenary session, which had reflected the growing recognition that cross-border initiatives are de facto stabilisation initiatives. Ms. Havlicek also emphasised the substantial preparation work necessary for truly indigenous transfrontier initiatives, and the international community’s responsibility to support locally-owned and led initiatives such as GPKT with both political and financial resources, particularly in this region where currently such activities are uncommon and where they will be a vital part of the process towards European integration.

IV. Conference Agenda

Monday 11th July 2005

10.00-11.00 Closed Working Session I: Integrated Development Planning in GPKT – Central Government Support for Co-ordinated Progress

Co-Chairs: Tom Thorogood, Head of Office, UNDP, and Chrissie Hirst, GPKT Project Manager, nager, EWI
Presentations of empirical economic data for GPK, and GPKT Integrated Development Plan
Kristof Bender, European Stability Initiative, and Frank Schwartze, inSAR
Presentations of needs related to economic development in GPKT
Zoran Damjanovski, Mayor of Kumanovo
Riza Halimi, Mayor of Presevo
Xhemail Hyseni, Mayor of Gjilan/Gnjilane
Milorad Nikolic, Vice-President of Trgoviste
Representatives of Serbian, Kosovo and Macedonian Governments, participating in open discussion

11.30-13.00 Closed Working Session II: Integrated Development Planning in GPKT – Needs and Priorities

Co-Chairs : Tom Thorogood, Head of Office, UNDP, and Chrissie Hirst, GPKT Project Manager, EWI
Introduction to discussion – the integrated planning process and local needs for development
Xhemail Hyseni, Mayor of Gjilan/Gnjilane
Overview of GPKT economic situation and the GPKT Integrated Development Plan
Kristof Bender, European Stability Initiative, and Frank Schwartze, inSAR
Representatives of Serbian, Kosovo and Macedonian Governments from the first Closed Working Session, participating in open discussion with the representatives of international organisations and agencies

2.30-4.00 Opening Plenary: The role of Transfrontier Co-operation in fostering Local Democracy, Stability and Development

Chair: Sasha Havlicek, Senior Director, Centre for Border Co-operation, EWI
Welcoming Statements from:
Musa Xhaferri, Deputy Prime Minister, Macedonia
Judy Batt, EU Institute for Security Studies, Adviser on Transfrontier Co-operation, Council of Europe
Goran Svilanovic, Chair of Working Table I, Stability Pact for South Eastern Europe
Rizvan Sulejmani, Minister for Local Self-Government, Macedonia
Gen Ninoslav Krstic, Vice-President, Co-ordination Body for Southern Serbia, Serbia
Zoran Damjanovski, Mayor of Kumanovo
Milorad Nikolic, Vice-President of Trgoviste
Riza Halimi, Mayor of Presevo
Xhemail Hyseni, Mayor of Gjilan/Gnjilane

4.30- 6.00 Plenary Session I: Border Regimes and Management – Progress and Remaining

Challenges facing GPKT
Chair: Goran Svilanovic, Chair of Working Table I, Stability Pact for South Eastern Europe
Presentation of EWI GPKT Border Management Policy Brief
Henry Bo lton, REFLEX Advisor, UK Government
Presentation of Border Management from the Local Perspective
Riza Hali mi, Mayor of Presevo, and Mr. Zoran Pavlovski, Kumanovo Municipality
Presentation of Border-related Property Issues
Shkumbin Arifi, Senior Regional Project Officer, Catholic Relief Services Pristina
Respondents:
Sasko Kocev, Chief Inspector, Ministry of Internal Affairs, Macedonia
Dusko Marinkovic, Assistant Director General, Customs & Legal Affairs Directorate, Serbia
Gen Ninoslav Krstic, Vice-President, Co-ordination Body for Southern Serbia, Serbia
Dmitry Zagrotskiy, Chief of Operations, UNMIK Border and Boundary Police
Paul Partner, Programme Manager for Police and Integrated Border Management, EAR Skopje


Tuesday 12th July 2005

9.00-10.30 Plenary Session II: Community Development and Conflict Prevention - Achievements and Perspectives in Transfrontier Municipal Development Planning, Youth, Education, Media and Women’s Co-operation

Chair: Judy Batt, EU Institute for Security Studies, Adviser on Transfrontier Co-operation, Council of Europe
Presentations on the conflict prevention aspects of multi-ethnic community work, and of cross-border municipal relations
Xhemail H yseni, Mayor of Gjilan/Gnjilane, and Milorad Nikolic, Vice-President of Trgoviste
Presentations of EWI’s Cross-border Community Activities, by members of each Working Group
Halim Isufi, Director Musa Zajmi School, Gjilan/Gnjilane – GPKT Education Committee
Nexhat Aqifi, Director TV Festa, Kumanovo – GPKT Media Working Group
Stefan Manevski, Youth Alliance Kumanovo – GPKT Youth Council
Presentation of GPKT Integrated Development Policy Plan
Frank Schwartze, inSAR
Presentation of GPKT Conflict & Development Policy Brief
Chrissie Hirst, GPK T Projec t Manager, EWI
Presentation of a Community Policing Perspective on the GPKT micro-region
Teofil Par asca, Community Policing Trainer/Police Development Unit, OSCE Kumanovo
Q&A and Open Discussion

11.00-12.00 Plenary Session III: International Programmes Fostering Transfrontier Co operation and Local Development

Chair: Sasha Havlicek, Senior Director, Centre for Border Co-operation, EWI
Panel Presentations from:
Judy Batt, EU Institute for Security Studies, Adviser on Transfrontier Co-operation, Council of Europe
Talia Boati, Expert, Working Table I, Stability Pact for South Eastern Europe
Martin Brooks, Co-ordinator for Southern Serbia, OSCE
Tom Thorogood, Head of Vranje Office, UNDP
Vassilis Maragos, Deputy Head Counsellor, European Commission, Skopje

12.00-13.00 Closing Plenary: GPKT Going Forward - Conclusions and Commitments

Chair: Sasha Havlicek, Senior Director, Centre for Border Co-operation, EWI
Concluding Statements from co-organisers:
Judy Batt, EU Institute for Security Studies, Adviser on Transfrontier Co-operation, Council of Europe
Talia Boati, Expert, Working Table I, Stability Pact for South Eastern Europe

V. List of Participants (Alphabetical Order)

List of Meeting Reports