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Ministry of International Economic Relations Republic of Serbia / Department for European Integration

2003

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WRITTEN BY:

Mihajlo M. Petrovic, Ministry of International Economic Relations, Republic of Serbia Srdjan N. Majstorovic, Ministry of International Economic relations, Republic of Serbia Rutger-Jan Schoen, Policy and Legal Advice Centre

EDITOR:

Ana S. Trbovic, Assistant Minister for International Economic Relations

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TABLE OF CONTENTS

1 Introduction 4

2 Background and description of the situation 5

2.1 The Stabilisation and Association process 5 2.2 Ongoing information and communication activities 7 2.3 What do we know about the audience? Research undertaken thus far. 8

3 Overall Approach 15

3.1 The role of communication about the SAp 15

4 A framework for a SAp Communication Strategy 17

4.1 Introduction 17 4.2 Communication during Preparation of SAA 18 4.2.1 The priority target groups 19 4.2.2 Objectives 20 4.2.3 Message platform per target group 21 4.2.4 Media and Communication Channels to be used 21 4.2.5 Monitoring and Research 28 4.3 Communication during SAA Implementation 28 4.4 Organisation of Communication to support EU Association 30 4.5 Co-ordination and Implementation 31

Note: This document has been prepared by the Department for European Integration of the Ministry of International Economic Relations of the Republic of Serbia in cooperation with Rutger-Jan Schoen, short-term advisor to the Savetodavni centar za ekonomska i pravna pitanja (SCEPP) in Belgrade, Serbia and Montenegro.

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1 INTRODUCTION This document provides a general framework for a communication strategy designed to bring the Stabilisation and Association process (SAp) of Serbia / Serbia and Montenegro closer to the citizens. Its main purpose is to ensure that the Governments are best able to inform their people, to consult them through research and meetings and to involve them as much as possible in the process of regional stabilisation and EU Association. These efforts can only succeed if all parties cooperate in the process, not only at national, regional and local government levels, but also outside government. Over the years, several non-governmental organisations have been active in informing and involving the public in this complex process. The strategy has been developed by the Department for European Integration (DEI) of the Ministry of International Economic Relations (MIER) of the Republic of Serbia. Discussions have been held with several stakeholders in the SAp. At an early stage a workshop was organised, in which PR staff of several Serbian Ministries, the European Integration Office of the Serbia and Montenegro, the European Commission’s Delegation in Serbia and Montenegro, and several NGOs and academics took part, to ensure that existing ideas and expectations would be incorporated. In addition members of the Committee for the Coordination of the EU Accession process have been kept informed. Technical Assistance was provided by the Savetodavni centar za ekonomska i pravna pitanja (SCEPP), by engaging an EU-Accession communication expert. Although the EU Association process has an impact on the whole of Serbia and Montenegro, and requires the active cooperation of Union and Republican partners, this strategy was confined to Serbia. In part this was because public opinion survey data were only available for Serbia, but it was also a result of the institutional complexity involved. However, the strategy is intended to provide a basic framework to which messages from the Council of Ministers of the Serbia and Montenegro can easily be added. At the same time, it can also be used to develop a similar communication strategy to support the EU Association process in Montenegro, once the requisite institutional setting and public opinion data are available. The structure of the strategy is as follows. A description of the situation and background is contained in Chapter 2, providing information about the SAp, ongoing SAp information activities and an assessment and analysis of the main audience & public opinion research carried out to date. Chapter 3 outlines the overall approach taken in the use of communication to support the SAp. Chapter 4 provides a framework for the strategy, drawing a distinction between the period leading up to the signing of the Stabilisation and Association Agreement (SAA) and the period of SAA implementation. The strategy is developed in detail for the first year and in outline form for the period following the signing of the SAA. Implementation of the strategy will be a joint effort by different partners. New initiatives will evolve and the course of the SAp itself might change. One part will be implemented by a public relations / communication agency, and another by other governmental and non-governmental organisations. Some coordination and assistance towards implementation will be exercised jointly by the Government’s Bureau for Strategic Communication and the MIER/DEI. This model provides the greatest assurance that the strategy will be integrated in the ongoing communication activities of the different Ministries and at the appropriate stage in the Stabilisation and Association process (SAp).

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2 BACKGROUND AND DESCRIPTION OF THE SITUATION 2.1 The Stabilisation and Association process Following the changes of 5 October 2000, Serbia and Montenegro and the European Union embarked on the Stabilisation and Accession process (SAp) – the EU's framework for relations with the countries of the Western Balkans. On 23 July 2001 the first of five consecutive Joint Consultative Task Force (CTF) meetings took place in Belgrade, bringing together high-level officials from Serbia/Serbia and Montenegro and officials from the European Commission. These meetings, constituting a technical preparation for the future negotiations of the SAA, established an important landmark for the new pattern of relations between Brussels and Belgrade. The next step is the preparation of a Feasibility Study by the EU Commission, evaluating the capacity of Serbia and Montenegro (Union) to engage in the SAA negotiations. Assuming a positive outcome is derived from the Feasibility Study, Serbia and Montenegro will initiate the SAA negotiations with the EU. From both perspectives, the main objective of the SAp is to bring peace, stability and economic development to the region through economic and political reforms. It will be achieved through Serbia’s adjustment and approximation towards EU-standards and norms, while at the same time initiating a process of regional integration. Serbia’s short and medium term goal is an association with the EU (mainly through the signing of the Stabilisation and Association Agreement (SAA), but also through its association with - and integration into - other EU associations and networks). In the long term, Serbia’s objective is EU membership. As mentioned above, five CTF meetings were held over the period between 23 July 2001 and 10 July 2002. In May 2002, the Department for European Integration was established at the Ministry of International Economic Relations of the Republic of Serbia. The Department’s main responsibility is to plan, coordinate and follow up the reform processes at the level of the Republic of Serbia, in view of its association with the European Union. At the initiative of the Department of European Integration, European Integration Units are being established in all Serbian ministries. The responsibility of these units is to register, assess and prioritise all the reforms necessary in their area of competence, so as to fulfil the EU criteria in the most efficient and rapid manner, with the goal of signing the Stabilisation and Association Agreement (SAA) and eventually attaining full EU membership. These ministerial units should, in the long run, be the key actors in the technical, sectoral negotiations over the various chapters of the acquis communautaire. Subsequently, the Council for European Integration of the Government of Serbia, which represents the supreme advisory body for European Integration in Serbia, held its constituent session on 4 September 2002. The Council is presided over by the Prime Minister and it is composed of 13 Ministers and Secretary General of the Government. During this session, the Prime Minister stated that the successful integration of Serbia in the European Union would depend on (i) political will and support to the process, (ii) harmonisation of legislation, (iii) reform of institutions and (iv) change of the cultural patterns and habits of the population.

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To provide guidance to the Stabilisation and Association process, and the subsequent pre-accession process, a Committee for the Coordination of the EU Accession Process was formed in October 2002. This Committee consists of Assistant Ministers and/or top civil servants. The Committee convenes on a regular basis.

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Association Agreement (SAA)

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Official application for membership ► E

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The Stabilisation and Association process is the guiding framework upon which the communication strategy has been based. In the figure above, a schematic presentation is given depicting the overall process. Since both preconditions for EU’s instigation of the Feasibility Study are fully met in the second quarter of 2003 (the Constitutional Charter and the Action Plan for harmonisation of the internal market of Serbia and Montenegro), the SAA negotiations and signing could be estimated for early 2004. After signing the SAA, another, long process of detailed negotiation, preparation and reforms will begin, which is likely to bring Serbia and Montenegro towards EU accession. This process will have an impact on all areas and facets of the Administrative System of the Republic of Serbia / Serbia and Montenegro. The structure being used in the EU-Serbia and Montenegro Consultative Task Force meetings has been as follows: - General - Political and economic reform - Sectoral reform

- Agriculture, veterinary and phyto-sanitary issues - Environment - Fisheries - Trade and customs - Employment and social affairs - Consumer Protection - Audiovisual and Culture - Education, Training and Youth - Research and Development - Justice and Home Affairs - Telecommunications and broadcasting - Competition - Intellectual Property Rights - Economic Issues - Fiscal - Statistics - Energy - Transport

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2.2 Ongoing information and communication activities To date, communication in Serbia on the EU has generally been isolated, fragmented, intermittent and without significant impact. Communication on the SAA / SAp has been limited. Since October 2000, the Serbian Government has launched several communication campaigns, which have involved a number of ministries connected to the reform process, but the campaigns’ results have been restricted. Effective inter-ministerial coordination in this field seems to be an exception and few ministries have thus far provided information on their reforms in relation to EU association. In the non-governmental sector, several initiatives have been taken. The most active NGO in this field is the European Movement in Serbia (EMINS). EMINS has been involved in publishing activities, events organisation (Europe Day, seminars, round tables etc), and even in television broadcasting. To a lesser extent, activities such as round-tables have taken place, bringing together republican, federal and EU officials, organised by the Euroinitiative and the European house of Čukarica in Belgrade. In the business field, one Euro-Info Centre has been established under the auspices of the European Agency for Reconstruction (EAR), assisted by local chambers of commerce. By end 2003 there will be 3 Euro Info centres in Serbia (Belgrade, Niš, Novi Sad). The main focus of these offices is to provide information to local entrepreneurs interested in exporting to the EU and future EU Member States. In the academic and research field, the Institute for European Studies (IES) in Belgrade has been quite productive in publishing its research, translating key EU documents and treaties. In addition, the Institute of International Politics and Economics, the Institute of Economics, Institute of Economic Sciences and the Institute of Comparative Law have been involved in the research and publication of highly specialised material destined for the academic community. However, the utility of the material produced by these institutes for a broader communication campaign is very limited, due primarily to its academic nature. . Finally, the Delegation of the European Union in the Serbia and Montenegro has itself prepared a number of information materials. These are most commonly information leaflets about the EU, its Member States, institutions, history, etc. They are comparable to (and often translations of) the EU Commission’s own information materials. The Delegation of the European Union is also, jointly with the Ministry of Education and Sports of the Republic of Serbia, the originator of a quiz show titled “Hello Europe”. This show is intended for high-school students throughout the country, and the main focus of the quiz is knowledge of the EU. The semi-finals and finals of the quiz are to be broadcast on national television. EU Member states also engage in activities to promote their own country and the EU, such as the “Mercredis de l’Europe” (Wednesdays of Europe), which take place every first Wednesday of the month at the French Cultural Centre in Belgrade, bringing together experts from France and Serbia/Serbia and Montenegro to discuss various aspects and issues of Serbia’s/Serbia and Montenegro’s association to the EU.

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2.3 What do we know about the audience? Research undertaken thus far. In order to ensure a logical and effective communication approach, including aspects of audience segmentation, message formulation or media selection, sufficient information about the knowledge, attitudes and perception of the key audiences is needed. The main source is a quantitative opinion research survey, based on the Eurobarometer (Omnibus) methodology, which is regularly commissioned by the MIER/DEI from the Strategic Marketing and Media Research Institute (SMMRI), a leading public opinion research firm in Belgrade. Every quarter approximately 1650 respondents are interviewed for a 30 - minute period. To date surveys have been completed in March and September 2002, and January 2003. The figures used in this section have been taken from the SMMRI January 2003 report and no other quantitative or qualitative research material has been used for the design of the strategy. One of the important activities suggested as part of this strategy is therefore additional qualitative audience research through focus group sessions and in-depth interviews with representatives of specific audience groups. Information about knowledge, attitudes of the audience In general the survey shows that the population of Serbia has a positive image of the EU: 52% of the population records positive associations with the EU (as opposed to 15% who have a negative reaction and 33% indecisive).

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Figure 1 Image of the European Union in Serbia by age group

A large group of the population of Serbia feels that they are not very well informed (43%), as against 25 % who feel that they are well informed. The responses suggest that young people and educated business-men would benefit the most, while retired persons, housewives and people with a low educational level would benefit least from EU accession. As regards the circulation of information about EU affairs, people generally believe that they are receiving better information than in the past. There seems to be a gap between rural and urban inhabitants, as well as between women and men; in both cases the former are less well informed than the latter.

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Figure 2 How well do you feel you are informed about EU- related issues?

Research also demonstrates that 70% of the Serbian population would vote “for” EU membership, as compared with 13% ‘’against’’. This widespread support is surprising. Interest in the European Union is high; even during the NATO bombing in 1999 the EU was favourably evaluated by the Serbian population.

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Figure 3 EU Membership will help the development of Serbia (by age group)

An international comparison of these figures in Figure 3 shows that Serbia scores comparatively highly in attitudes to EU membership. We should not forget, however, that the data from other enlargement countries is drawn from a relatively late stage of the EU-Association process; a lengthy period of negotiations has led to a decrease in popularity of the European Union in most countries.

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Figure 5 Assessment of the statement: ‘Our country has a lot to offer to the EU’

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Awareness about EU-institutions seems to be reasonably high (from 50 - 99 %), and although confidence in these institutions is still low, it seems to have been increasing over the years.

Have you read or heard about the following subjects during last 3 months:

% of respondents in Serbia I have confidence in this institution

European Union 99 42 European Council 82 32 Central Bank of Europe 74 42 European Parliament 73 26 European Council of Ministers 57 29 European Commission 52 26

Figure 6 Knowledge of EU Institutions

Conclusions Based on research carried out in other accession countries, we can divide the respondents into four groups: eurosupporters (those who support membership of the European Union), eurosceptics (those who would be “against”), undecided (those who have not yet decided) and the silent population - (those who would not vote at all). Taking into account the views of eurosceptics, in the public information sphere special attention has to be paid to explaining the EU’s likely impact on the culture, national identity and sovereignty of Serbia / Serbia and Montenegro. It is important both to publicise the activities planned by the Government, and to explain the reasons behind them, if we are to decrease the alienation of the public in these instances. 1. According to age – In general, interest and support decrease with age. A particular case is

that of the age-group 15-19. These young people are more positive about EU Association than older people, but their “knowledge base” is smaller. They are not well informed, but as might be expected they are also not as yet very interested in international relations, social issues and public administration. By contrast, in the age group 20-29, 45% say that they want more information on the European Union, and only 3.3% do not want any information at all.

2. According to residence (Belgrade, Central Serbia and Vojvodina)

Urban inhabitants are best informed on European Union issues. The next well-informed group is the inhabitants of other cities, while receptivity to further information is approximately equal for both urban and rural (Vojvodina) inhabitants. The most significant support in the case of a referendum would come from Belgrade and the other cities, and the most negative would be the rural inhabitants. Among Vojvodina inhabitants 45% have not yet made up their mind whether or not to support the association process.

3. According to gender - more women than men are undecided (49%).

The percentage of both eurosupporters and eurosceptics is larger among men than among women. In other words, more men are either for or against, whereas a larger proportion of women is undecided. Men feel better informed about EU issues (32% claim to be well informed, as compared with 33% stating that they are insufficiently informed), which

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probably determines their attitude towards an increase in information. Among female respondents only 18% feel that they have sufficient information, as against 52% who consider themselves uninformed. The main differences between the interests of men and women on EU issues are these: women are more interested in combating unemployment, in the protection of human rights, health and cultural policy. Men are more interested in agricultural and fishery policy, and less interested in the issues identified as significant by women.

One of the most important issues for respondents is that EU membership can radically affect the economic development of Serbia and Montenegro and the welfare of its people. The opinion of eurosupporters on the usefulness of association is determined by that fact that the EU can affect Serbia and Montenegro’s external security, work and education possibilities. The most important factor for eurosceptics is a belief that joining the EU can affect the culture of Serbian and Montenegrin people, their identity and independence, as well as internal security and the situation regarding crime in the country. - Taking into account the generally positive attitude of young people towards EU

Association, coupled with their limited understanding of the issues involved, this group should be given increased attention in the public information process. This is especially true if we recall that a decision on joining the EU may be made only after an interval of 10 years, which means that the youth of today will be economically and politically active by the time Serbia and Montenegro becomes a member of the European Union.

- Special attention has to be paid to information for rural inhabitants and to the availability of information for this group.

- A comparatively large number of undecided are among the age group 31-40 - i.e. people now actively engaged in work, who are also open to a limited amount of additional information.

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“Information behaviour” on EU association in Serbia and Montenegro We need a clear picture of the media landscape, including the most popular information channels and patterns of receiving information, as well as information on the confidence level of the public in different state and non-governmental institutions if we are to plan for a broader and more effective distribution of information on EU issues for the public. According to SMMRI data the most frequently used information medium in Serbia and Montenegro is TV, followed by the press (see table below). This situation does not differ much from other countries.

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Figure 7 Information sources on EU (-Association) in Serbia

Media research demonstrates that the principal newspapers have a high penetration in Belgrade but are less widely available in rural areas. Thus basic information (not simply on the EU, but in general) is received from “low cost information sources” - TV, radio and local newspapers. Local and regional newspapers, which have a high penetration in rural areas, do not currently provide much information on EU issues, but as expected, different media show considerable variations among the different age-groups as shown in the figure below:

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Figure 8 Means of information related to age groups in Serbia

At this point we should emphasise the conclusions of research on the main factors inhibiting a better understanding of Serbia and EU relations. The most frequently mentioned cause (61%) is a lack of confidence towards people in government: this is why people do not believe official explanations and recommendations. This public reaction suggests that the Government needs to concentrate on supplying objective information, and should avoid becoming directly engaged in a process of public advocacy that could prove to be counter-productive. Conclusions:

- There seem to be considerable variations across different segments of society, covering age-groups, gender divisions and urban/rural audiences. These are not only reflected in knowledge levels, opinions and attitudes, but also in patterns of media use and the ways in which different groups search for information;

- Local authorities are not yet involved in the information process, although people rely more on local authorities than on Government;

- It is important to channel information through those media and channels which reach people in an environment which they appear to trust: e.g. special interest programmes on television and special interest magazines or media from non-governmental organisations;

- Taking into account the lack of confidence of people in government institutions, and the limited penetration of central newspapers in rural areas, co-operation with regional mass media has to be better developed. This is re-inforced by the fact that the population outside of Belgrade significantly values local media (radio, TV, press);

- The youngest group of 15-19 year-olds needs special attention. They seem to have a positive attitude towards EU issues, but do not understand them adequately and are poorly motivated towards acquiring more information. This issue needs to be addressed through curricular and extra curricular information activities.

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3 OVERALL APPROACH 3.1 The role of communication about the SAp The SAp is a complex political/administrative process, which is further complicated by the current institutional and political structure of Serbia and Montenegro. For some people who are already directly involved in its preparation, both in Government and leaders/specialists in non-governmental organisations, the process may appear to be both concrete and specific. For most Serbian citizens, however, it will be perceived as an abstract process within which they cannot exert much influence. Decisions are apparently taken, which do not on immediate inspection seem to be in the interest of all the population over the short term. For some segments of the population it is hard to see how the demand made by the European Union to establish certain administrative, legal and technical conditions even before negotiations begin can serve national interests. A well-planned communication strategy ought to explain and minimise negative impacts on the SAp and help build the consensus necessary for a smooth preparation and implementation of the SAA. In general, a communication strategy seeks to raise consciousness and, over time, to change attitudes. In this particular case the approach taken is to ensure that progress towards EU membership is based upon an adequate and reliable supply of information. The main strategic objective of the “communication programme to support the Stabilisation and Accession Process of Serbia and Montenegro”, is

to ensure that the citizens of Serbia and Montenegro are aware of the SAp, understand the overall aim of joining the European Union, have a balanced view of its consequences and possess sufficient reliable information to take up their role and responsibilities in the SAp.

It should lead to increased social consensus among different societal groups, and a more effective contribution to the process from all sectors of society. The concentration, as well as the audiences, messages and the use of media for such involvement, will vary over the different phases of the SAp. During the initial stage of SAA preparation, a first phase should be initiated with the aim of consolidating existing general awareness among the general public, and organising specific communication activities directed towards selected professional target groups. This phase will also be characterised by significant benchmarks, such as the adoption of the Constitutional Charter (which was approved by the Serbian Parliament on 27 January 2003), the start and finalisation of the feasibility study and the signing of the SAA. Once the SAA is signed, the relationship of Serbia and Montenegro with the EU will change fundamentally. Officials of the EU and of Serbia and Montenegro and the Republics will have to work their way through a meticulous preparation of all the issues included in the acquis communautaire. During this phase awareness among the general public needs to be reinforced, buttressed by an increased involvement of the line ministries wherever the content

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of negotiations and preparations becomes more technical and coordination of communication activities becomes imperative. Government sources cannot not claim exclusivity on EU issues and on the pros and cons of eventual membership. The volume and range of information is too great and the number of information channels too extensive for this to be contemplated, and furthermore, research has demonstrated that official information sources have a mixed and changing credibility. Other information providers – the private sector, the non-governmental community and especially the independent media – must also play a prominent role.

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4 A FRAMEWORK FOR A SAP COMMUNICATION STRATEGY

4.1 Introduction In this section details of the actual communication strategy will be elaborated. Its overall aim will be to involve the people in Serbia in a meaningful and relevant way in the process of preparing and implementing the SAA. Some of them are already involved, or will soon become closely involved in the actual process, while others will only be affected in a more indirect way, reflecting the impact that it will have on all sectors of society. It has to be borne in mind that some of the changes taking place are the consequence of other reforms and are not directly a result of the SAp. Due to changes in neighbouring countries that will become part of the Schengen zone, visa regulations may be modified. On the other hand, businesspeople may already benefit from a more favourable investment climate in Serbia, greater access to the EU market for Serbian products and an increase in job creation. The communication strategy will help people to understand this process and the rationale behind it, but it should also facilitate the flow of information from people to the Government. Since the overall time frame of this process may be more than 10 years, the strategy will also include benchmarks at which progress is being assessed and possible adjustments can be made. By adjusting the annual work plans, we can ensure that the communication strategy will continue to impact meaningfully on the implementation of the SAp. This communication strategy is designed to cover the whole process, from the current stage when the Constitutional Charter is being agreed until the moment when Serbia and Montenegro becomes a full member of the European Union. It is evident, not only because the direction and speed of this process is difficult to predict, but also because the environment will change continually, that benchmarks have to be pinpointed, when an assessment of progress can be made and future plans can be adjusted. Annual action plans will be prepared, which also allow for adjustments in the strategic direction of communication support. As described in the introduction, the SAp will pass through several phases, each of which has distinct needs for communication support. Objectives, target groups, messages and materials to be used will vary considerably. We also anticipate that the strategy will include some phases which have the character of a campaign, implying a substantial use of mass media and more direct and ‘below-the-line’ approaches that may be less visible for the general public, but will reach key target groups. The 1st phase of “SAA preparation” is expected to last until the moment when the SAA is signed, somewhere towards the end of 2003 or early 2004. At this point the formal process of implementation of the SAA and preparation for EU-accession will begin, moving the communication strategy into its 2nd phase. Several partners will play a role in the implementation of the strategy. One strand of activities will be undertaken by a local PR agencies, while others will be entrusted to NGOs or comparable institutions, with an interest and involvement in the issues of EU Association. Some may be implemented by MIER/DEI itself.

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Consultative Task Force

(CTF) meetings Serbia

and Montenegro-

EU

Feasibility study with positive

results →

SAA negotiations

Stabilisation and

Association Agreement (SAA)

Interim

Agreement (IA)

Implementation of SAA

Official application for membership ► E

U

AC

CE

SSION

SAA Preparation The period from the present time (agreement on and the implementation of the Action Plan for the harmonisation of the internal market) to the beginning of 2004; During this period, while the feasibility study is being implemented and the SAA negotiated, information about the European Union and its implications for society of Serbia needs to be broadly circulated to citizens. This communication to the general public will be in general terms, designed to re-inforce their opinion on EU-association in a meaningful way (in other words; instead of “selling Europe” more “thinking about Europe”). Significant moments where additional exposure should be given are: - June 2003: EU-meeting in Thessalonica to discuss EU Association process for the

Western Balkans. - Visa regime on the Hungarian border, Summer Olympic Games in Athens 2004

(“Corridor 10”), Italian presidency, etc.

SAA Implementation

A subsequent, longer period, during which preparation and negotiation for EU Association takes place; working on the acquis communautaire; impact on specific groups of people will become clearer, at which point the EU debate will need to be constantly fuelled and updated. At a later stage this phase might be further subdivided into separate strands, - Negotiation (pre-referendum) - Referendum: The period from the opening of final negotiations to the appropriate

timing for a referendum. - Accession: The intensive period immediately prior to a referendum, leading up to EU

membership, if approved. - Post accession: The period after accession, at which point public information

functions will need to be maintained. It should be noted that these phases, while discrete, cannot all be assigned precise time-scales at present. However, the scheme permits overall planning to take place, while still recognising that individual action plans will need to be prepared for each phase to cover a specific period of time. 4.2 Communication during Preparation of SAA During the preparation of the SAA, communication will focus mainly on Government staff, key decision-makers and opinion leaders in the non-Governmental sector, private sector and the media. The overall objective of communication during this first phase will be to ensure that all relevant audiences are aware of their expected role and responsibility in the SAp and understand the underlying practical conditions. Its aim is to ensure that people in Serbia are aware of the SAp, understand the overall aim of associating/joining the European Union and possess sufficient reliable information to take up their role and responsibilities in the SAp. It

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should lead to increased social consensus among different societal groups, and a more effective contribution to the process from all sectors of society. This strategic objective may be broken down further into several operational objectives, reflecting in turn considerations of the volume of information flow, its quality, and the ease with which it may be accessed. They may be formulated as: - To optimise the flow of information about the European Union and related governmental

reforms, - To assure the accuracy and relevance of this information, and - To facilitate full access to the information. 4.2.1 The priority target groups The audience may be divided into two categories that are distinct, but also overlap. One comprises those professionally involved and the 2nd is the general public. The first group is made up of Government officials (national, regional and local/municipal), leaders of professional organisations, such as Chambers of Commerce, Universities and science institutes, leading EU-focussed NGOs, and finally the media. All of these, itemised below, will have assigned responsibilities in the SAA preparation process.

- Political decision-makers - Civil servants (in the line ministries) - Municipal and regional officials - Journalists (at the national and regional/local levels) - NGO leaders - Teachers and Scientist - Employers and Businesspeople

The aim of the 2nd strand is to establish a basis for specific communication activities in the future. It begins by informing the public, in a general way, about the process which Serbia and Montenegro has embarked upon. We should recall that, based on earlier research, the general public can be usefully divided into different categories: those very much in support of EU Association, the ‘Euro supporters’, those very much against it, “the Eurosceptics” and a large group which has not yet formed an opinion. Even in this 1st phase, we need to segment our approach to these groups as far as possible. The EU-supporters need to be serviced with reliable, accurate information about the process, about EU issues and policies in general and developments in EU relations with Serbia and Montenegro in particular. If the MIER takes a proactive approach, a good deal of emphasis will be placed on providing access to relevant information as and when it is needed. A strategic use of the Internet could make it a “truly interactive and lively” forum for debate and exchanges of information, in addition to being a reliable source of information, featuring regularly updated links to other relevant sites. The need for this approach is also supported by

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the research, with 3-4 % of respondents indicating that they use the Internet as an information source. For the 15-19 age group, it is actually their third most important source of information. Students are likely to have a positive interest in the process, because association will improve their opportunities to complement their education through the whole range of different student exchange programs. Minorities are also likely to welcome EU-association, because it should provide them with additional guarantees for their rights. However, others are likely to have more negative perceptions, because they fear EU- association will either disrupt their lifestyle, or exacerbate the social and economic problems they already face (for example, the elderly, unemployed, and agricultural workers). Such groups are:

- Women - Farmers and agricultural workers - Pensioners - Factory workers - Unemployed

Results from the January 2003 SMMRI public opinion survey warrant special attention being paid to the age-group 15-19 years. This group has radically different media behaviour, interests and attitudes. Their expectations are high, but their factual understanding of the process seems low: nevertheless they seem to have a positive orientation towards EU relations. While this is not a problem per se, the “cognitive underpinning” of these positive attitudes needs to be strengthened to prevent confusion and rejection if expectations are not realised in the short term. The MIER/DEI will start a discussion with the Ministry of Education, to develop a feasible approach towards improving understanding of EU & regional association issues, partly through in-school and partly through extra-curricular activities. Another audience needing special attention is made up of international target groups, such as officials of the European Union and Member States. The negotiation process will be influenced by the way in which these officials perceive Serbia and Montenegro’s efforts to prepare for association. A separate strategy (which could form part of a broader international strategy to improve awareness and the image of the Serbia and Montenegro in Europe and other parts of the world) should be developed by the Council of Ministers of the Serbia and Montenegro. An International PR Agency could be contracted to design and implement such a strategy on behalf of the Ministry of Foreign Affairs of the Serbia and Montenegro. 4.2.2 Objectives The objectives of the communication strategy during the 1st phase are twofold: - Firstly, to inform those who are already -- or soon will be -- directly involved in the SAA

preparation process about the SAA Strategy and encourage/enable them to assume their role and responsibilities in a creative and constructive manner

- Secondly, to consolidate the apparent level of awareness and positive attitude towards EU

Association and related government reforms among the general public, through a better

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understanding of the impact of the process and of the ways in which they can be informed. This should enable people to arrive at a balanced judgement based on fact rather than rumour.

4.2.3 Message platform per target group Experience shows that the interest of different groups varies widely, and consequently the content of messages needs to be formulated with care for each item of information material, activity or event to be implemented under the strategy. However, the overall message will be made up of two elements:

- First, a general component, which will be repeated if possible across all information materials. This part will emphasise the following sentiment: Serbia and Montenegro has embarked upon the road towards EU Association, possibly leading towards EU membership in due course. This will have its impact on all of us, sometimes positive, sometimes negative, but in the final resort it is for the benefit of all citizens of Serbia.

- The 2nd element of the message will depend on the target group and the chosen

medium. For those directly and professionally involved it will be more factual and informative; for those not yet involved, it should stimulate thinking and awareness. The “tone of voice” will be realistic, restrained and appropriate to the reality of life for most people in Serbia. However, in addition to the predominantly informative character of the messages, they should also provide an opportunity for affective content to be introduced.

4.2.4 Media and Communication Channels to be used The mix of media, information materials and communication activities to be used during the 1st phase is linked to the specific target groups mentioned above. In this section of the report we shall distinguish between communication through media, intermediary organisations and direct communication. Media communication: This concerns all communication through Radio, TV and print media (newspapers and magazines, including both national & regional titles). Penetration is often very high, but impact varies considerably. News media have their own role and responsibility, which presents a separate opportunity for the communication strategy, by providing journalists with the information they need to analyse and place before their readers. Some activities will be undertaken through independent institutions, helping journalists to strengthen their understanding of the complex issues of the SAp. In addition, the Government will assist other media, special interest magazines and programmes to report on EU Association issues in an appropriate way for their audiences Direct communication

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This refers to communication emanating directly from the MIER/DEI towards the target groups: the website, printed brochures, newsletters. It should be emphasised that effective distribution of these items often requires a significant amount of additional financial and human resources. Their advantage, however, lies in reaching the target groups exactly as intended, without a risk of distortion of content and meaning. Communication through Intermediary organisations Thirdly, Communication through Intermediary organisations will be used wherever possible and appropriate. In some cases NGOs, Universities and comparable institutions are better placed to develop programmes on this subject than the Government itself. This situation arises not simply because they are more credible, but also because the use of such channels provides an opportunity for bottom-up communication. In other words, intermediaries are able to provide feedback from their constituencies, which complements other, more formal audience research (research necessary on a continuing basis to ensure that Government addresses all the information needs of its citizens). Materials and activities relevant for all target groups: (i) A series of PowerPoint presentations about ‘Serbia and Montenegro and the

Stabilisation and Association process’. The ‘EU-Association message’ is complex to deliver to others. To improve the quality of information, both in content and in coherence, PowerPoint presentations in Serbian will be prepared. Among the topics will be:

- EU Association: the basic arguments, addressing benefits, pre-conditions for success, economic analyses, the cost of non-enlargement and the state of public opinion,

- Frequently Asked Questions, - The Stabilisation and Association Process; why we engage in it, what we are

doing and how the citizen can be involved. The presentations will contain slides, ‘notes for the presenter’ and possibly some supplementary handouts. Some of these presentations have already been made; these will be reviewed and put into a format appropriate to the overall visual identity of the communication programme. The presentations will be distributed through the Internet and on CD-Rom.

(ii) Printed material

A series of print materials will be made available in the Serbian language. At this stage the following materials are being considered:

- One leaflet about SAp, describing in easily understandable language the main purpose and characteristics of the Stabilisation and Association process. 100.000 copies will be distributed to/through Ministries, local government, other government institutions, educational institutions, NGOs, and possibly Post offices.

- One brochure about SAp, describing in more detail specific aspects of the process. It will be used mainly by those directly involved in the process, and those with a high level of interest. 15.000 copies will be printed and distributed

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through Ministries, local government, other government institutions, education institutions and NGOs.

- A series of translated brochures about specific aspects of EU-relations, “Basic Facts about Europe”, “Enlargement the basic argument” etc.

- Because they cover specific issues, which are relevant to fewer people, a smaller print run of 2.000 copies will initially be produced.

(iii) Three specially prepared 15 min audiovisual productions “European Association:

what does it mean for Serbia“. While much of the information is in written form, a great deal of audiovisual information is available on television, produced by the broadcasters. From the point of view of the MIER, which has its own priorities, this information is not always complete and does not always contribute to a properly rounded vision of the issues at stake. To help redress this situation, 3 documentaries will be made by professional filmmakers, intended to provide a more thoughtful and comprehensive view of the process of EU Association. One general documentary will be produced about the SAp, based on a detailed script covering the historic background to the process, the basic arguments and facts of enlargement, some key enlargement issues and above all its guiding vision. This 15-20 minute documentary will be produced and used as an introduction during meetings, and it will be distributed to both governmental and non-governmental organisations and institutions. At a later stage other videos may be prepared on specific topical issues that appear to need audiovisual support, in addition to the range of print materials.

(iv) A national television programme on EU Association and EU affairs

The feasibility of a 30 minutes long national television programme on EU association / EU affairs by the Radio Television Serbia (RTS) Channel 1 (a national broadcaster) will be assessed. Initially it could be programmed on a monthly basis, to be reprogrammed more frequently (biweekly or weekly). It should cover the entire scope of Serbia-EU relations, ranging from economy, business, legislative reform, to culture, national heritage and human rights. Identification of issues will be take place by programme makers and the research which is taken place to determine interest. This TV show should be developed by RTS (journalists, studios, technical matters…) whereas the MIER/DEI and other government and non-government institutions involved in the SAp could assist by providing information and contacts. This programme should serve as a TV “one stop spot” for all those who wish to be better informed about issues and news in Serbia’s EU integration process.

(v) Three Documentaries about Serbia and Europe

Serbia has a lively, reputable and highly creative cinematographic community. A strategy which enables three film makers to produce a documentary from their own perspective, without intrusion or interference from Government, will help broaden awareness and stimulate serious thought about EU-relations. The objective of the documentaries will not be simply to promote EU-Association, but to do so by encouraging a process of constructive thinking among people in Serbia as to what

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Europe means for them. To achieve this objective, they will focus on the emotional and affective aspects of the debate, avoiding a procession of facts and figures in favour of stimulating audiences to think for themselves.

A request for proposals for 15-20 minute documentaries about “Regional Association or Serbia-EU relations” will be circulated. Budget will ensure high quality documentaries. The selection of the proposals will be made by a specially composed panel, comprising a mix of Government, non-governmental and professional experts. Three applications will be funded. All documentaries will be screened during a specially organised event and later broadcast on national and regional TV.

(vi) Selection and adaptation of “Enlargement/Accession film/video documentaries

available/made in other enlargement countries During the last 5 years a wide range of documentaries has been produced in other enlargement countries on the theme of EU-relations. Some of these could be adapted to meet the needs of the Serbian public. MIER/DEI will start discussions with the EU-Delegation to assess the feasibility of this proposal. Documentaries could be broadcast on one of the TV channels with a suitable introduction, or commented upon by an acknowledged opinion-leader. This concept needs to be examined in more detail with an appropriate channel. Research and preparation for this activity could begin at once, while transmissions would be scheduled later, to correspond to SAA-signing.

(vii) MIER/ DEI Homepage

The MIER/DEI website will be an organic part of the MIER web-site and will follow MIER guidelines on design and visual identity. The website provides sections on MIER, DEI, the SAp, and already offers “Links to relevant Serbian and international sources on EU relations”; a “Calendar of events” covering the activities of all partners; a page of Frequently Asked Questions; and a facility for posing questions. Updating of the site is handled entirely by the MIER. An annual evaluation will be scheduled with selected users to assess whether the website meets the information needs of its users.

(viii) Round Tables and Public Debates

The MIER/DEI in cooperation with Universities, Institutes and EU-oriented NGOs will organise a number of different round tables and public debates on subjects related to the SAp and Serbia-EU relations. In the later stages (Phase 2) similar round tables are to be organised in order to discus different EU policies.

(ix) Website “www.europe.yu”

The purpose of the MIER/DEI website is to provide information about MIER structure, policies and background and solicit feedback from the Serbian population. Over the coming years there will be a growing need for a platform that allows all the organisations involved in the process of regional stabilisation and association to exchange information, points of view and experiences. A website of this kind could

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be managed by an NGO with adequate experience of website development and management.

(x) Editorial publicity scheme;

A media planning agency will be asked to compile an appropriate mix of special interest magazines and radio/TV programmes directed towards the following specific audience segments: - Government officials and other decision-makers - Local Government - University students - Young people (14-19) - Older people/pensioners - Women

Out of the lists produced by the media planners, 1 or 2 titles will be selected, and in consultation with their editors a number of articles will be prepared, which take the specific interest of their readership as their entry-point. In addition to the areas of sectoral reform and the speed of SAA preparation (and subsequently implementation) mentioned on page 5, other key interest areas will be identified. These will be used as a vector for media planning, so as to link information directly to the specific interests of key target audiences. An example may be helpful. Although it has a substantial impact on the general public, the topic of “consumer protection” does not arouse great public or journalistic interest. Nevertheless, if we are able to identify segments of the population for whom this topic is particularly relevant, we can use modern media planning techniques to pinpoint the channels through which we can reach them, drawing on a media environment not directly associated with EU accession news. For example, special Serbia-EU/SAA/SAp related issues can be brought closer to specific target groups by an approach to special interest magazines such as “Ana” (for women), “Porodica” (for families), “Status” (for youth), “Profil” (cultural issues), “Selo” (for farmers), etc. We can establish contact with the editors to assess their interest and discuss ways in which we can provide material for their publications, ranging from background information to ready- made articles written by free-lance journalists. As a further example, changes in visa regulations are very relevant to a fraction of the population. People who travel regularly need to be informed of changes early to avoid frustration, and a media plan could be prepared to reach such people.

Government officials at the national level Many of the materials suggested above can also be circulated to Government officials at a national level. There are also existing exchange and coordination mechanisms, which will be continued and used to provide up to date information about the SAp.

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(xi) Regular inputs of news, the ‘calendar of EU-events’ and other relevant information to the network of the Bureau for Strategic Communication of the PM. The Bureau for Strategic Communication already maintains an intranet, which is available to all PR-staff in Serbian Ministries. The communication coordinator of the MIER/DEI is already able to add information about Sap, and at a later stage the possibility of preparing a separate domain to cover EU relations and SAp will be assessed. This could become an important mechanism in co-ordinating EU-Association information and securing contacts from all Ministries.

(xii) Formal meetings, within the framework of SAA-preparation, at the Committee for

Coordination of the EU Association. During these meetings (Deputy) Ministers and top officials will be briefly informed about current communication activities and the need to coordinate all EU communication initiatives.

Local Government Officials (xiii) Possibly linked to Europe Day (May 9th), and in collaboration with the Standing

Conference of Towns and Municipalities of Serbia and Montenegro (SCTM), preparation of special events designed to enhance awareness of EU Association and what this will mean at the local level. These events can be combined with other proposed activities, such as drawing/essay contests for school children. They can also draw on other materials such as brochures and documentaries.

Media

(xiv) Regular press releases, where possible with an explanatory annex providing

additional technical information.

(xv) A media kit, including different materials about the SAp, details of SAA preparation, updates on relevant websites, administrative structures and relevant information about EU enlargement. Depending on the implementation of the communication programme, additional materials can be added, such as CD-Roms, contacts in Brussels, etc.

(xvi) Regular interviews will be organised for news media, as well as other opportunities

for the media to meet and question leading figures in the SAp.

(xvii) In collaboration with the EU Delegation, a visit of a representative group of journalists to Brussels will be considered. The visit would bring the journalists into contact not only with EU-officials involved in the process, but also with European associations for journalists and possibly other media channels.

(xviii) A 2-day workshop “Reporting about Europe”, with input from an experienced

Serbian and European journalist/trainer. The purpose of the workshop is twofold: 1st to inform the participants about the EU-Association process and 2nd, to strengthen

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their capacity to report on EU-affairs. The workshop will be organised by an independent organisation and will include basic information about Regional Association and EU Relations. In addition it will include a review of different items from press Radio & TV, and the preparation of customised materials for the journalists’ paper/network. If possible the workshop should be combined with the visit to Brussels mentioned above.

(xix) Three 2-day regional workshops on “Reporting about Europe”, organised in the

regions for local journalists. Media analysis suggests that reporting in the regional media is limited and often inaccurate. Additional information about the background and context of SAp is urgently needed to assist regional papers and broadcasting stations to improve the quality of their reporting. Like the national workshop, it will be organised by a leading NGO or Institution in this field.

Educational groups In close cooperation with the Ministry of Education and an experienced NGO, the following activities will be developed for Higher Education institutions:

(xx) A debating competition will be organised by an NGO, Institute or University, with

the support of the MIER/DEI. A Panel, consisting of a well-known Professor, (Assistant-) Minister, representative of the media, and the director of an NGO will assess the performance of the debaters and announce the winners. Media publicity will be organised around this event and the prize could be a trip to Brussels.

(xxi) An essay contest, along the same lines as the debating contest. The subjects will be

determined at a later stage, following the same procedure as the debating competition.

(xxii) For secondary schools, special activities will be discussed with the Ministry of

Education and NGO’s.

(xxiii) For primary schools in Belgrade (and possibly also in the regional cities) a drawing competition will be organised, inviting the children to produce a drawing expressing what they associate with Europe. The 20 best drawings will be photographed, put on the MIER/DEI website and can travel as an exhibition through different Ministries and Local Government buildings. An NGO with a strong regional network could take the lead in this activity.

(xxiv) A possibility of awarding partial stipends to graduate students writing on EU-related

matters shall also be assessed.

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4.2.5 Monitoring and Research During this 1st phase additional qualitative and possibly quantitative research will be carried out. The Bureau of Communications of the PM office has a framework contract with SMMRI, and additional questions for the Omnibus survey, special focus groups and inputs to the clippings service can be provided by DEI. The impact of the communication programme will be assessed and analysed through the quarterly Public Opinion Survey, commissioned to SMMRI by the MIER/PR department. If these results suggest a need for further qualitative research, this could also be commissioned to SMMRI, so as to ensure continuity and a deeper understanding of the factors leading to individual perceptions, attitudes and habits of media use among specific segments of the general public. Furthermore, focus groups will be organised both in Belgrade and in the rest of Serbia, to secure a better understanding of the special concerns and preoccupations of specific target groups, such as young people, pensioners, Government officials, etc. Finally some formative research may be considered, to “pre-test” selected communication materials before they are reproduced in large quantities. Towards the end of the 1st phase additional research will be carried out to assess the impact of the communication programme and evaluate which methods were most successful. This will be used to review the strategy and develop a new annual plan for the following period. 4.3 Communication during SAA Implementation The signing of the SAA will be a distinct and highly important landmark in the SAp. It will make Serbia and Montenegro an associate member of the EU, with the advantages and obligations which this brings. From this point onwards, a lengthy process of meticulous preparation, negotiation and implementation of all the requirements prescribed by the acquis communautaire will begin. This process will necessitate the direct involvement of the line ministries and will impose further specific communication needs. Most of the activities initiated under the 1st phase will continue. More information materials will be prepared for the different sectors, contacts with the media will continue, becoming more specific in certain cases but still maintaining the overall vision and objective of the SAp: Serbia and Montenegro as a member of the European Union. The main differences during this phase will be a greater segmentation of the communication audience, highlighting specific target groups for whom particular chapters of the acquis communautaire are especially relevant. The following materials and activities will be undertaken: - A segmented relational database, linking specific chapters of the acquis communautaire

to particular target groups. By drawing on this database it will be possible to send customised email messages with attachments to those target groups for whom the content is relevant. For example, reforms in the judicial system or in the organisation of the public prosecutor’s office and its relationship with the police will not be relevant for those

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interested in the agricultural sector. The database will be designed and developed during phase 1 and will be operational by the time of SAA implementation.

- During SAA implementation increased use will be made of intermediary organisations, to

convey relevant information to sectors of the general public. The possibility of establishing a small grants programme will be considered. Different groups in society would be able to apply for financial support to organise sensitisation and information activities for the groups they represent.

- If research suggests, during the process of SAA implementation, that public awareness

and the perception of certain EU-issues does not match the progress being made in negotiations, the organisation of a large scale communication campaign will be considered. Such a campaign would be developed and implemented by a PR agency.

- Finally it is expected that Inter-Ministerial Coordination will become even more important

during SAA-Implementation. Practical experience of such coordination will already have been acquired during the period leading up to SAA, and suitable mechanisms may already have been formalised by the time the 2nd phase begins.

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4.4 Organisation of Communication to support EU Association The working partnerships required to implement this communication strategy imply an organisational structure of some complexity, since they depend for their effectiveness upon a wide range and variety of contacts, linked through both formal and informal networks.

Since responsibility for the coordination of the SAp lies with MIER/DEI, and communication can only be effective if it is well founded, integrated and constantly adjusted to the pace of SAA preparation, the responsibility for the coordination of this strategy will also rest with the DEI of the MIER. At least one permanent staff-member of the DEI shall be responsible for this process1.

However, since the coordination of government communication is entrusted to the Bureau of Communications in the Prime Minister’s office, very close coordination and collaboration with this office will be necessary. Rather than developing a new series of meetings of the PR-staff of the Ministries, it will be more efficient to build on/connect to the existing coordinating mechanisms already developed by this office.

Participation in this partnership will be on a voluntary basis. All relevant Ministries from both Republics and Serbia and Montenegro are expected to take part and the resulting exchange of experience may serve as an incentive to them to become increasingly active as partners in the network. As part of this cooperation between PR and Media staff from different Ministries, workshops will be initiated on media-relations and other aspects of Government communication, to strengthen planning and management skills and exchange experiences.

Obviously a wide range of non-governmental organisations from all sectors of Serbian society will initiate new activities, many of which have not been considered in this strategy. The role of the MIER/DEI will be to continue to serve as an active partner, facilitate the activities of other partners wherever possible and itself undertake specific activities when appropriate. A local PR agency will be contracted to enable the Ministry to launch urgent activities proposed by the strategy. The preparation of the 2004 work plan is scheduled to take place in November 2003, and based on progress made during the preceding year and the opportunities foreseen for the next year, the new plan and budget will be prepared and shared with all partners.

1 Responsibilities: (i) monitor the SAp-process to anticipate issues which should be included in the communication plan, (ii) supervise communication sub-contractors, (iii) participate in the Government communication coordination process.

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Figure 4. Overall Framework for EU Association 4.5 Co-ordination and Implementation The Department for European Integration (DEI) The MIER/DEI is the main agency responsible for planning, co-ordinating and implementing communication strategy to support the SAp. Figure 4 illustrates the institutional organisation for EU affairs in Serbia, Montenegro and the Serbia and Montenegro. The Department for European Integration currently includes an information unit, but at this stage, only one person in the MIER/DEI is responsible for communication, reporting directly to the Assistant Minister responsible for DEI. This level of organisation might be sufficient during the period before the SAA is signed, but once Serbia and Montenegro becomes an Associate member, the unit’s workload will expand and appropriate solutions will have to be found to match the administrative structure prevailing at that time2.

2 Different (combinations of) options are possible, for example: (i) expansion of the communication unit within DEI; (ii) strengthened communication responsibility in the line ministries; (iii) increased involvement of the

- European Integration

Министарства Министарства Министарства Министарства

Ministry of International Economic Relations (Minister)

│ EU Integration Office of Serbia and

Montenegro

Ministry of Foreign Affairs (Minister)

│ Sector for Economic Affairs

(Assistant Minister) │

Directorate for the European Union

RREEPPUUBBLLIICC OOFF SSEERRBBIIAA

RREEPPUUBBLLIICC OOFF MMOONNTTEENNEEGGRROO

Prime Minister's Cabinet

(Advisor to the Prime Minister for European

Integration)

Ministry of International Economic Relations (Minister)

│ Department for European Integration

(Assistant Minister for European Integration) (Special Advisor to the Minister for European

Integration)

Министарства

Committee for the Coordination of the EU Accession process

(mainly Assistant Ministers) - sub-committees and working groups

Министарства Министарства Министарства Министарства Министарства Ministries - EU units -

Ministry of International Economic Relations and

European Integration (Minister)

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Council for European Integration (Prime Minister and

13 Ministers)

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Currently, the resources of the DEI, both human and material, are limited, and it can handle only a small part of its information output directly. The bulk of its work should be accomplished by contracting a professional PR agency and by commissioning or subcontracting NGOs or Institutes with a focus on Serbia-EU relations. Some tasks such as MIER-Media relations and updating the website will remain with the MIER. The EU Integration Office of Serbia and Montenegro The EU Integration Office (EIO) of Serbia and Montenegro, as the counterpart of the European Commission for issues concerning Serbia and Montenegro, will continue to play an active role in coordinating the planning of communication activities in Serbia and Montenegro, wherever this is feasible and meaningful. In addition the EIO of Serbia and Montenegro should take the lead in preparing a communication strategy to improve the visibility of, and regard for the Serbia and Montenegro as a modern state, participating effectively in the regional Stabilisation and Association process. European Commission’s Delegation in Serbia and Montenegro In this particular context, the position of the European Commission’s Delegation is also critical. With regard to accession negotiations, the Delegation’s counterpart in Serbia is the Ministry of Foreign Affairs of the Serbia and Montenegro, but its role in public information is less well defined. Essentially, the role of the Delegation in information matters is to publicise and explain the work of the European Union and the European Commission, not to address the Serbian public directly. In practice, this role can at times seem blurred, and it is important that the information activities of the Delegation and of the MIER/DEI should be complementary, mutually consistent and avoid duplication. This in turn implies close and practical co-operation, from the planning stage onwards. Information Advisory Group During the Strategy preparation workshop for PR staff of Ministries and other relevant organisations it was suggested that an information advisory group could be useful during implementation of the strategy. This would be an ad hoc, open ended and informal group, bringing together, on invitation, a number of recognised personalities in the fields of public relations, the media, advertising and marketing, sociology and survey work etc. This group would be used as a sounding board to evaluate strategy and solicit ideas on different aspects of implementation (e.g. message design, production, distribution, testing and monitoring materials).

Bureau for Communication, which would assume some of the communication co-ordination tasks, while DEI continues to manage co-ordination between SAA implementation and communication support.

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