Albanian Attitudes toward European Integration

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Albanian Attitudes toward European Integration

Ramadan Çipuri∗ & Albi Koçibelli∗

Milestones: Albanian Relations with the European Union

After Second World War, for more than 45 years, Albania underwent one of the most terrifying communist regimes in history. During this period of time more than 17,900 people were arrested, 5,157 people were killed and more than 30,000 were forced to leave their homes.4 After this long period in total isolation, the first pluralist elections were held in the country on March 11, 1991. Finally the long-awaited aspirations of the people for democracy, freedom and free movement were seen as more real and realizable. The EU at that time was one of the first outside bodies to contribute to Albania’s democratization and warming relations with the West by establishing diplomatic relations with the latter in 1991.5 A year later, on May 11, 1992, one of the most important events in relations between the two was marked by the signing of the Trade and Cooperation Agreement that entered into force on December 1, 1992, and allowed Albania to become eligible for funding under the EU Phare programme.6 In this period, Albania was included in the General System of Preferences (GSP), which represented an overall regime of trade preferences that the EU was offering to a wide array of countries with which it had contractual relations. This represented a significant step toward restructuring EU assistance to Albania in a variety of areas that coincide with the reforms in which the latter was engaged. Under this program, between the years 1992 and 2000, Albania was provided with substantial assistance.7 In 1996, Albania was close to signing a new contractual agreement with the EU, which would pave the way for a classical association agreement, but contested parliamentary elections of May 1996, along with the deep financial and social crisis in early 1997 caused by the fall of the pyramid schemes led to the failure of any initiative in this direction.8

∗ M.A. Ramadan Çipuri, Lecturer, Department of Political Sciences and International Relations, Epoka University, Tirana, E-mail: [email protected] ∗ M.A. Albi Koçibelli, Lecturer, Department of Political Sciences and International Relations, Epoka University, Tirana, E-mail: [email protected] 4 Boulat, Alexandra, “Albanians, A People Undone”, National Geographic Magazine, February 2001, p. 21. 5 http://www.mie.gov.al/?fq=brenda&d=4&gj=gj1&kid=58, Official web page of the Ministry of Integration of thr Republic of Albania. Last accessed 22 March 2011. 6 Ibrahimi, Arta, Integrimi i Ballkanit Perendimor ne UE, Logos-A, Skopje 2009, p.135. 7 The European Union’s Phare and Tacis Democracy Programme - Projects in Operation 1996, Brussels 1996, p. 9-7 8 Bello, Marko, Negotium, Publication of the Ministry of Foreign Affairs, Tirana 2002, p. 8-11

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The political developments during this period in different countries of the region, such as the dissolution of former Yugoslavia and the creation of a set of new states whose parameters differed from those of Central Europe, led the European Union to adopt a Balkan policy called "Regional Approach" in 1996.9 General Affairs Council, at this time, provided a range of political and economic conditions that the Balkan countries should meet to develop and strengthen their relations with the EU. These criteria had to do with democratic principles, freedoms and human rights, building and strengthen of the rule of law, protection of minorities, development of the market economy and regional cooperation. Although oriented to help strengthen democracy and reforms in the respective countries, the policy of the EU strived to give the expected results. Because of recent regional developments such as the tragic events in Kosovo, the system of international relations has been "traumatized" and the pressure to find forms and other ways to speed up the integration of South-Eastern Europe in the EU structures increased. In May 1999, the European Union adopted a new initiative for the five Balkan countries—Albania Albania, the Former Yugoslav Republic of Macedonia, Croatia, Bosnia-Herzegovina and the Federal Republic of Yugoslavia—called the Stabilization and Association Process (SAP).10 Albania was part of this new initiative since its launch. The process aims at establishing closer relations between the EU and the countries mentioned above through the Stabilization and Association Agreement (SAA), which are agreements that specify the commitments of the specific countries with regard to political, economic, trade, and human rights reforms, to be full field, with an emphasizes on the EU legislation, the so called acquis communautaire. In November 1999, the European Commission presented a report on the feasibility study for opening negotiations with Albania for the signing of the Stabilization and Association Agreement concluding, however, that Albania did not meet the conditions for such an agreement.11 The prospect of western Balkan countries for integration into the European Union was reinforced after the European Council convened in Feira on June 2000, where it was ruled that all countries involved in the Stabilization and Association Process are potential candidates for EU membership.12 In November of 2000, a meeting of the countries involved in the Stabilization and Association Process was held in Zagreb. At this meeting, the EU decided to intensify the cooperation with Albania through the creation of the High Profile Taskforce. The purpose of this group was to assess Albania's capacity to assume the obligations of a Stabilization and Association Agreement with the EU. The Task-Force held

9 Moschella, Manuela, “European Union’s Regional Approach Towards Its Neighbours: The European Neighbourhood Policy Vıs-À-Vıs Euro-Mediterranean Partnership”, 2004 University of Catania. 10 http://ec.europa.eu/enlargement/potential-candidates/albania/relation/index_en.htm last accessed 22 March 2011. 11 Ibrahimi, Arta, Integrimi i Ballkanit Perendimor ne UE 12 Ibrahimi, Arta, Integrimi i Ballkanit Perendimor ne UE, p 61.

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three meetings in Tirana, at the end of which the European Commission drew up an evaluation report that described the processes and areas where improvements are still needed.13 In conclusion, the Commission found that although much remains to be done in terms of meeting the obligations arising from a Stabilization and Association Agreement, the prospect of opening negotiations is the best way to maintain the pace of political and economic reforms in the country. For this purpose, the Commission concluded that it was the moment to proceed with the Stabilization and Association Agreement with Albania. As the Commission noted:

“Albania is not yet in the position to meet the obligations of a Stabilization and Association Agreement. However, if the current pace of change is sustained and if sufficient priority is given to strengthening administrative capacity during the negotiating and transition periods, considerable improvements can be made in the areas highlighted in this report. The Commission believes that the perspective of opening Stabilization and Association Agreement negotiations is the best way of helping to maintain the momentum of recent political and economic reform, and of encouraging Albania to continue its constructive and moderating influence in the region. The Commission therefore considers it appropriate to proceed with a Stabilization and Association Agreement with Albania, and it will in due course submit a recommendation for a Council decision to open negotiations, which can, of course, only be concluded when all appropriate conditions have been met.”14

By the request of the Council, in December 2001, the European Commission presented the Council draft mandate of negotiating a Stabilization and Association Agreement with Albania. In the meeting was set also the creation of the EU/Albania Consultative Task-Force. The said draft negotiating mandate prepared and presented by the European Commission was discussed at a technical level by EU member states during the period of January-July 2002.15 The General Affairs Council of the EU, in its meeting on October 21, 2002, decided to open negotiations with Albania. Negotiations were officially opened by the President of the European Commission, Mr. Romano Prodi, on January 31, 2003. 16 As Mr. Prodi noted:

"Europe is at a turning point of its history. We have today a bigger, stronger European Union but we have many challenges ahead after this enlargement. I hope Albania can face this challenge. All Albanians and especially the young generation should have the perspective of a better future, of a better political and social environment they live in.

13 http://www.mie.gov.al/?fq=brenda&d=4&gj=gj1&kid=58, Official web page of the Ministry of Integration of thr Republic of Albania. Last accessed 22 March 2011. 14 European Commission, Report from the Commission to the Council On the Work of the EU/Albania High Level Steering Group, in Preparation for the Negotiation of a Stabilization and Association Agreement with Albania (Brussels: European Commission, COM 2001 0300 final. 15 Ibrahimi, Arta, Integrimi i Ballkanit Perendimor ne UE, p.136-137. 16 Albania's European Destiny. Speech by Romano Prodi. http://europa.eu/rapid/pressReleasesAction.do?reference=IP/03/153&format=HTML&aged=0&language=EN&guiLanguage=en, last accessed 22 March 2011.

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I personally believe that the Albanian people and its state institution will carefully face this challenge and will guarantee the European standards in their country. The commitment, firmness, patience and accomplishment represent the basis of the strategy. And Europe will be on your side through help, support, advice and encouragement."

The Thessaloniki Summit, the so-called Zagreb II, held in June 2003 confirmed the prospects for EU accession of the Western Balkans countries and paved the way for the use of the same instruments as the ones used with the new member states at that time.17 In June 2006 Albania signed the Stabilization and Association Agreement with the EU, which was ratified on January 2009 by the 25 EU member states of the time. The said agreement entered in force on April 1, 2009.18 Even though the Stabilization and Association Agreement between Albania and EU was signed in 2006, according to the results of a survey carried out by the Euro-barometer, only 33% of the interviewed European citizens supported the possible accession of Albania while 50% of them were against it. According to the same survey respectively 66% and 55% of the population in Germany and England was opposing further enlargement.19 On April 28, 2009 Albania has applied to become EU candidate country.20 While on November 8, 2010 the Ministers of Interior of the Member States of the European Union approved the lifting of the visa regime with Albania, on November 9, 2010 in the Annual Report the Commission stated that Albania was not ready to become an EU candidate country. Table 01- Key dates in Albania's path towards the EU21 Date Event 9 November 2010 Adoption of the Commission Opinion on Albania's application for membership of the

European Union 8 November 2010 EU decision granting visa liberalization to Albania 27 May 2010 The European Commission adopts a proposal to enable citizens of Albania and Bosnia

and Herzegovina to travel to Schengen countries without needing a short term visa. 15 April 2010 Albania delivers replies to the Commission's Questionnaire 28 April 2009 Albania submits its application for EU membership

17 Brown, Adele; Attenbourg, Michael, EU enlargement: The Western Ballkans, The House of Commons library, London 2007, p. 7 18 Latifi, Juliana, The approximation of Albania legislation within European legislations, one imperative condition for membership in the European Union, UACES Conference, France 2009, p. 6 19 Attitudes towards European Union Enlargement Fieldwork March-May 2006, Publication July 2006, Special Euro-barometer 255 / Wave 65.2 – TNS Opinion & Social 20 http://ec.europa.eu/enlargement/potential-candidates/albania/relation/index_en.htm, last accessed 22 March 2011. 21 Based on the date available on http://ec.europa.eu/enlargement/potential-candidates/ Albania/ relation/ index_en.htm last accessed 22 March 2011.

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1 April 2009 Entry into force of the Stabilization and Association Agreement (SAA) June 2008 The European Commission presents a road map identifying specific requirements for

visa liberalisation with Albania. 18 February 2008 Council decision on a revised European partnership for Albania January 2008 The visa facilitation agreement between Albania and the EU enters into force. January 2007 Entry into force of the new instrument for Pre-Accession Assistance (IPA) December 2006 Entry into force of the Interim Agreement June 2006 Signature of the Stabilization and Association Agreement (SAA) May 2006 Entry into force of the EC-Albania readmission agreement January 2006 Council decision on a revised European Partnership for Albania June 2004 Council decision on a first European Partnership for Albania June 2003 At Thessaloniki European Council the Stabilization and Association Process (SAP) is

confirmed as the EU policy for the Western Balkans. The EU perspective for these countries is confirmed.

2001 First year of the Community Assistance for Reconstruction, Development and Stabilization (CARDS) programme specifically designed for the Stabilization and Association Process countries

November 2000 Zagreb Summit launches the Stabilization and Association Process (SAP) for five countries of South-Eastern Europe, including Albania

June 2000 Feira European Council states that all the SAP countries are "potential candidates" for EU membership.

1999 Albania benefits from Autonomous Trade Preferences with the EU. 1999 The EU proposes the new Stabilization and Association Process (SAP) for five

countries of South-Eastern Europe, including Albania. 1997 Regional Approach. The EU Council of Ministers establishes political and economic

conditionality for the development of bilateral relations. 1992 Trade and Co-operation Agreement between the EU and Albania. Albania becomes

eligible for funding under the EU's Phare programme. 1991 Establishment of diplomatic relations between Albania and the European Economic

Community

Albania - EU: Perceptions and Realities

Albanians are a people who have always been pro-European and pro-change. Over the past 20 years, numerous statistics, public opinions and many other facts point to a strong desire of their support that they have shown for the integration of Albania into the European family. According to a survey organized by the Centre for European Studies and the Department of Political Science and International Relations at Epoka University, it is noted that approximately 68 percent of Albanians (728 out of 1084 respondents) consider relations with the European Union as the most important in terms of Albanian Foreign Policy direction in the coming ten years. An even greater percentage of Albanians—92 percent (995 out of 1084 respondents)—desire the membership of Albania in the European Union.

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Figure 1. Graph of Albanian Priorities in Foreign Policy

Taken from “Albanian Public Perceptions of Socio-Cultural Issues and Foreign Policy: A Survey 2010.” In response to the question: “Which of the following alternatives should be prioritized in the foreign policy of Albania?” 22 This statistic is supported by the Albanian intellectual opinion too. Although skeptical at how the Albanian politicians are acting and have acted up to now, Prof. Dr. Zyhdi Dervishi stresses that Albanians have always supported the path of European integration, despite the role of the Albanian political elite which has not been the appropriate one. During an interview regarding to the perception of Albanians on Foreign Policy, Prof. Dervishi said that “It has been talked a lot about Albanian joining to the European Union, but I think that we already are part of Europe and slogans are formulated in a way that is a proactive, inaccurate and somehow ugly. We Albanians should formulate in a simpler way and in a more realistic way our slogans that we choose to integrate us. We should reach European standards; this is the essence of our involvement in the European structures.”23 Another Albanian intellectual, publicist and author of several books, Dr. Agron Tufa, says that pro-European policies must be primary for the Albanian government. According to him, Albania is territorially part of Europe and Albanians have always demanded being part of the space to which they belong. Dr. Tufa says, “The European Integration of Albania will help in all spheres of social activity--worker, intellectual, commercial--and [these] would be the […] major advantages, but another advantage

22 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010, Center for European Studies (CES) and Department of Political Sciences and International Relations, Epoka University, Tirana (Draft) 23 Prof, Dr. Zyhdi Dervishi, Personal interview, 18 May,2010, Tirana, Albania

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would be of the adaption of the mentality [and] psychology with the European civilization to which we have been and are.”24 Analyzed in terms of gender distribution, interesting is the fact that Albania's European integration finds almost identical rates of support among women (51% or 366 out of 720 respondents) and males (49% or 354 out of 720 respondents). On the other hand, performing an analysis regarding to different group ages of the population, it is seen that the EU integration process finds a greater support in the youngest age groups (Figure 2). This should be because this age groups leans toward change and innovation. Although now middle-aged, the young were also the ones who challenged and brought the collapse of monist regime in the early 1990s. Figure 2: Which of the following alternatives should be prioritized in the foreign policy of Albania? (Age Distribution)

As noted in the chart above, 63 percent (457 out of 727 respondents) of the population of those 18 to 40 years old support the Albanian pro-European policies for the coming years. “Within their own age groups, the majority of 18- to 25-year-olds (74% or 237 out of 321 respondents) support prioritizing relations with the EU. Within the group of 26- to 40-years-olds, a slightly smaller majority, about 66 percent (220

24 Dr. Agron Tufa, Personal interview, 02 May,2010, Tirana, Albania

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out of 330 respondents), prioritize relations with the EU. Likewise, about 66 percent (196 out of 298 respondents) of the group 41- to 45-years-olds prioritize relations with the EU.”25 In other words, as chart clearly shows, the support for prioritizing the EU relations decreases as the age of respondents increases. The educational level of the population seems to be another important indicator in the perception of Albanians on the European Integration process. “Analyzed by the level of education, the relations with the EU are assessed as primary from high school graduates (51% or 367 out of 725 respondents), followed by graduates in universities (35% or 255 out of 725 respondents).”26 The main support of those with a high-school level education seems to come from the employment opportunities that European countries offer, compared to the difficult conditions faced in the Albanian labor market. The overwhelming support for Albania’s EU integration found in the wider population is shared by representatives of the Albanian elite class. One of the most famous politicians after the collapse of the monist regime in 1991, former economy minister and Socialist Party Member of Parliament of the Republic of Albania, Dr. Arben Malaj, considers the European future of Albania as one of the most important challenges to the Albanian policies. According to him, "The European Integration process is very important for Albanian people. This process is a dream for all Albanians who left back one of the most dictatorial regimes in 1991. Thus, Tirana should be very careful in its policy regarding issues that could affect the country's European future.”27 The Head of the Albanian Muslim Community, Haji Selim Muca, is one of those intellectuals who support and think that Albania’s future should be in the European family. Interviewed regarding to this issue, he says that Albania is an integral part of the European continent. Mr. Muça stresses that "Albania is an integral part of the European continent. Albanians have many social and cultural values which can significantly influence within the European Community. The tolerance between different religious beliefs is a value with which the Albanian society can contribute to the countries of the European family.”28 As suggested in the following chart, of Albanians who express support for Albania’s EU integration, 49 percent (484 out of 995 respondents) focus on the economic benefits of integration. This may simply be a reflection of the importance that the EU places on the economy, but it could also reflect the importance of the economy to Albanians, particularly after the poverty that many Albanians have faced in the past. As it is obtained by the survey results, only a small percentage of Albanians do not prioritize the country's integration into the European Union (5% or 54 out 1084 respondents). To those who think this way, the

25 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010 26 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010 27 Dr. Arben Malaj, Personal Interview, 20 March, 2011, Tirana 28 Haxhi Selim Muca, Personal interview, 2 May, 2010, Tirana

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largest single group expresses the concern that EU membership will not change anything (26% or 14 out of 54 respondents). Figure 3: If "YES", why should it become a member? (Percent)

29 Even though 20 years have passed since the fall of the monist regime, Albanians still think the biggest difference between Albania and the European Union has to do with the level of democracy. Thirty-nine percent of Albanians believe that democracy and human rights is the main problem in Albania that differentiates it from the European Union. Almost the same percentage of Albanians—38 percent—think that the biggest difference or issue between Albania and the EU is in the area of the economy. As shown in the following chart (Figure 4), women think the economy (51% or 206 out of 403 respondents) is the main problem between Albania and the EU, while men think that the main problem is democracy and human rights (55% or 226 out of 413 respondents). According to the study by CES, “This may confirm a slight difference in perceptions of problems among men and women. Although men and women are overall very similar in their prioritization of issues, women outnumber men in identifying issues of relationships and interactions—the economy, relations with neighboring countries, and the idea of a greater Albania—as more important, while men, by a small margin, focus more on issues of identity—the issues of democracy and human rights and of identity and religion.”30

29 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010 30 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010

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Figure 4: What is the most serious issue between Albania and the European Union? (Gender Distribution)

Figure 5: Which of the following alternatives represents the field that the European Union is most successful at? (Frequency)

31 Even though nowadays the EU has been struggling with the economic crises spread all over from Greece to Ireland, Albanians still think that the EU is more successful in the area of economy (33% or 354 out of 1084 respondents) and after that in the area of democracy (23% or 247 out of 1084 respondents).

31 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010

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Despite 92 percent of respondents (995 out of 1084) supporting Albania’s EU membership32 just over 10 percent (112 out of 1084 respondents) of the Albanian people do not have any knowledge about what the European Union is successful at (Figure 5). Another point that attracts attention is that few Albanians think that the EU is most successful in religion (0.4% or 4 out of 1084 respondents), an opinion perhaps caused by the polarization of the situation during last years in countries such as Austria, Netherlands, etc from the increasing of the Muslim population in those countries. The religion statistic, however, may also simply reflect the EU’s strongly secular nature and the fact that it is, in a global context, very successful in areas of economy, democracy and general good governance. Of those who think that European Union is most successful in the field of economy, the largest single group of supporters is from the group of 18- to 25-year-olds with about 32 percent or 113 out of 354, followed by the group of 26- to 40-year-olds with 29 percent or 103 out of 354 respondents. Meanwhile, of those who see the EU as most successful in the developing of democracy, the largest single age group is the group of respondents the group of 41- to 55-year–olds, which most probably indicates their long-awaited aspirations and dreams for western democracy (32.5 % or 80 out of 246 respondents). 33 Figure 6: Which of the following alternatives represents the field that the European Union is most successful at? (Age Distribution)

32 Based on the data obtained by the Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010 33 Yenigun, C, Baltaci, C, Ozcan, S, Albanian public perceptions of Socio-cultural issues and foreign policy, A survey 2010

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Conclusions As noted by Dr. Tufa, the Albanians are a people who always wanted to be part of what they belong to: the European family. The data obtained from the respondents to the CES survey clearly confirm Dr. Tufa’s opinion and those of others in the Albanian elite. Previous surveys also show the Albanian people’s opinion about the European Union and integration in this important body. Just a year ago, this perception was observed in a poll organized in January 2010 in all Balkan countries by Gallup Europe in cooperation with the European Fund for the Balkans, the Academy of Political Studies and the European Movement in Albania. "The respondents have stated that if a referendum would be held, nearly 90% of them would vote pro union with the countries of Europe”.34 Albanians’ strong support for European integration does hint at areas of concern, insofar as the desire to join the EU may be inspired by the desire to solve some of the major domestic issues in the country: "However, what people expect from the potential integration into the European Union is associated with some of the most pressing problems of the country: people think that besides free movement, it may also bring more security and strengthening of the rule of law”.35 Whether the external promise of integration into the EU will remedy the internal concerns in Albania or whether the issues of democracy, human rights and a strong economy need a more organic, domestic impetus for improvement is yet to be seen. However, one strong indication that Albanians are responding to improved relations with the EU and sincerely support EU integration is the maturity they have shown after the liberalization of the visa in December 2010. Cases of violations of the rules and conditions imposed by the EU for the free movement of Albanians in the Schengen area have been few and insignificant. Unlike the incidents that occurred with citizens of neighboring countries, where the liberalization of the visa was granted earlier, Albanians have been very careful in this regard. The fact that the great majority of Albanians have used the opportunity for visa-free travel in a mature, responsible way—possibly influenced by the bad experiences of neighboring countries and the Albanian government’s awareness campaigns in relation to free movement—demonstrates a strong understanding on the part of the Albanian people for implementing international law within the large European family.

With the strong support for Albania’s EU integration on the part of the major political parties and the vast majority of the Albanian people, and with the demonstrated respect for EU law shown by Albanians after visa liberalization, there is good reason to believe that Albania will see the fulfillment of its aspiration for integration within the EU.

34 http://www.tiranaobserver.com.al/index.php?option=com_content&view=article&id=2320:sondazhi-shqiptaret-te-kenaqur-me-jeten&catid, Visited on 08 April, 2011 35 http://www.tiranaobserver.com.al

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