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Consolidated text: Council Joint Action 2005/889/CFSP of 25 November 2005 on establishing a European Union Border Assistance Mission for the Rafah Crossing Point (EU BAM Rafah)

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02005E0889 — EN — 01.07.2025 — 022.001

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►B	►C1 COUNCIL JOINT ACTION 2005/889/CFSP of 25 November 2005 ◄ on establishing a European Union Border Assistance Mission for the Rafah Crossing Point (EU BAM Rafah) (OJ L 327 14.12.2005, p. 28)

Amended by:

		Official Journal
		No	page	date
►M1	COUNCIL JOINT ACTION 2006/773/CFSP of 13 November 2006	L 313	15	14.11.2006
M2	COUNCIL JOINT ACTION 2007/359/CFSP of 23 May 2007	L 133	51	25.5.2007
►M3	COUNCIL JOINT ACTION 2007/807/CFSP of 6 December 2007	L 323	53	8.12.2007
M4	COUNCIL JOINT ACTION 2008/379/CFSP of 19 May 2008	L 130	24	20.5.2008
►M5	COUNCIL JOINT ACTION 2008/862/CFSP of 10 November 2008	L 306	98	15.11.2008
M6	COUNCIL JOINT ACTION 2009/854/CFSP of 20 November 2009	L 312	73	27.11.2009
►M7	COUNCIL DECISION 2010/274/CFSP of 12 May 2010	L 119	22	13.5.2010
►M8	COUNCIL DECISION 2011/312/CFSP of 26 May 2011	L 140	55	27.5.2011
►M9	COUNCIL DECISION 2011/857/CFSP of 19 December 2011	L 338	52	21.12.2011
M10	COUNCIL DECISION 2012/332/CFSP of 25 June 2012	L 165	71	26.6.2012
►M11	COUNCIL DECISION 2013/355/CFSP of 3 July 2013	L 185	16	4.7.2013
►M12	COUNCIL DECISION 2014/430/CFSP of 3 July 2014	L 197	75	4.7.2014
►M13	COUNCIL DECISION (CFSP) 2015/1065 of 2 July 2015	L 174	23	3.7.2015
►M14	COUNCIL DECISION (CFSP) 2016/1107 of 7 July 2016	L 183	64	8.7.2016
►M15	COUNCIL DECISION (CFSP) 2017/1193 of 4 July 2017	L 172	12	5.7.2017
►M16	COUNCIL DECISION (CFSP) 2018/943 of 29 June 2018	L 166	19	3.7.2018
►M17	COUNCIL DECISION (CFSP) 2019/1115 of 28 June 2019	L 176	6	1.7.2019
►M18	COUNCIL DECISION (CFSP) 2020/955 of 30 June 2020	L 212	18	3.7.2020
►M19	COUNCIL DECISION (CFSP) 2021/1065 of 28 June 2021	L 229	11	29.6.2021
►M20	COUNCIL DECISION (CFSP) 2022/1017 of 27 June 2022	L 170	74	28.6.2022
►M21	COUNCIL DECISION (CFSP) 2023/1303 of 26 June 2023	L 161	64	27.6.2023
M22	COUNCIL DECISION (CFSP) 2024/1806 of 25 June 2024	L 1806	1	26.6.2024
►M23	COUNCIL DECISION (CFSP) 2025/773 of 14 April 2025	L 773	1	15.4.2025
►M24	COUNCIL DECISION (CFSP) 2025/1283 of 26 June 2025	L 1283	1	27.6.2025

Corrected by:

►C1	Corrigendum, OJ L 005, 10.1.2006, p. 20 (2005/889/CFSP)
C2	Corrigendum, OJ L 017, 24.1.2007, p. 23 (2006/773/CFSP)

▼B

▼C1

COUNCIL JOINT ACTION 2005/889/CFSPof 25 November 2005

▼B

on establishing a European Union Border Assistance Mission for the Rafah Crossing Point (EU BAM Rafah)

Article 1

Mission

A European Union Border Assistance Mission for the Rafah Crossing Point (EU BAM Rafah) is hereby established, with an operational phase beginning on 25 November 2005.

EU BAM Rafah shall operate in accordance with the mission statement as set out in Article 2.

Article 2

Mission statement

▼M7

The aim of EU BAM Rafah is to provide a Third Party presence at the Rafah Crossing Point in order to contribute, in cooperation with the Union’s institution-building efforts, to the opening of the Rafah Crossing Point and to build up confidence between the Government of Israel and the Palestinian Authority.

▼B

To this end, EU BAM Rafah shall:

(a)

actively monitor, verify and evaluate the Palestinian Authority’s performance with regard to the implementation of the Framework, Security and Customs Agreements concluded between the Parties on the operation of the Rafah terminal;

(b)

contribute, through mentoring, to building up the Palestinian capacity in all aspects of border management at Rafah;

(c)

contribute to the liaison between the Palestinian, Israeli and Egyptian authorities in all aspects regarding the management of the Rafah Crossing Point;

▼M8

(d)

assist EUPOL COPPS in its additional tasks in the area of training of PA border and crossing management staff for Gaza crossings.

▼B

EU BAM Rafah shall implement the responsibilities entrusted to it in the Agreements between the Government of Israel and the Palestinian Authority regarding the management of the Rafah Crossing Point. It shall not undertake substitution tasks.

▼M1 —————

▼B

Article 4

Structure of the mission

EU BAM Rafah shall consist of the following elements:

(a)

Head of Mission, assisted by an advisory staff;

(b)

Monitoring and Operations Department;

(c)

Administration Services Department.

These elements shall be developed in the Concept of Operations (CONOPS) and Operation Plan (OPLAN). The Council shall approve the CONOPS and the OPLAN.

▼M3

Article 4a

Civilian Operation Commander

The Civilian Planning and Conduct Capability Director shall be the Civilian Operation Commander for EU BAM Rafah.

▼M7

The Civilian Operation Commander, under the political control and strategic direction of the Political and Security Committee (PSC) and the overall authority of the High Representative of the Union for Foreign Affairs and Security Policy (HR), shall exercise command and control of EU BAM Rafah at the strategic level.

▼M3

The Civilian Operation Commander shall ensure proper and effective implementation of the Council's decisions as well as the PSC's decisions, including by issuing instructions at the strategic level as required to the Head of Mission.

All seconded staff shall remain under the full command of the national authorities of the sending State or EU institution. National authorities shall transfer Operational Control of their personnel, teams and units to the Civilian Operation Commander.

The Civilian Operation Commander shall have overall responsibility for ensuring that the EU's duty of care is properly discharged.

The Civilian Operation Commander and the EU Special Representative shall consult each other as required.

▼B

Article 5

Head of Mission

▼M7 —————

▼M3

►M7 1. ◄

The Head of Mission shall assume responsibility and exercise command and control of the mission at theatre level.

▼M11

1a.

The Head of Mission shall be the representative of the Mission. The Head of Mission may delegate management tasks in staff and financial matters to staff members of the Mission, under his/her overall responsibility.

▼M3

►M7 2. ◄

The Head of Mission shall exercise command and control over personnel, teams and units from contributing States as assigned by the Civilian Operation Commander together with administrative and logistic responsibility including over assets, resources and information put at the disposal of the mission.

►M7 3. ◄

The Head of Mission shall issue instructions to all mission staff, for the effective conduct of EU BAM Rafah in theatre, assuming its coordination and day-to-day management, following the instructions at the strategic level of the Civilian Operation Commander.

▼M11 —————

▼M3

►M7 5. ◄

The Head of Mission shall be responsible for disciplinary control over the staff. For seconded staff, disciplinary action shall be exercised by the national authorities or EU institution concerned.

►M7 6. ◄

The Head of Mission shall represent EU BAM Rafah in the operations area and shall ensure appropriate visibility of the Mission.

►M7 7. ◄

The Head of Mission shall coordinate, as appropriate, with other EU actors on the ground. The Head of Mission shall, without prejudice to the chain of command, receive local political guidance from the EU Special Representative.

▼B

Article 6

Planning phase

During the planning phase of the mission, a planning team shall be established and shall comprise the Head of Mission, who shall lead the planning team, and the necessary personnel to deal with functions ensuing from established needs of the mission.

A comprehensive risk assessment shall be carried out as a priority in the planning process and shall be updated as necessary.

The planning team shall draw up an OPLAN and develop all technical instruments necessary to execute the mission. The OPLAN shall take into account the comprehensive risk assessment and shall include a security plan.

Article 7

EU BAM Rafah personnel

The numbers and competence of EU BAM Rafah personnel shall be consistent with the mission statement set out in Article 2 and the structure set out in Article 4.

EU BAM Rafah personnel shall be seconded by Member States or EU institutions. Each Member State shall bear the costs related to EU BAM Rafah personnel seconded by it, including salaries, medical coverage, travel expenses to and from the mission area, and allowances other than per diems.

International and local staff shall be recruited on a contractual basis by EU BAM Rafah as required.

Third States may also, as appropriate, second mission personnel. Each seconding third State shall bear the costs related to any of the personnel seconded by it, including salaries, medical coverage, allowances, high-risk insurance and travel expenses to and from the mission area.

▼M12

All personnel shall remain under the authority of the appropriate sending State or EU institution and shall carry out their duties and act in the interest of the Mission. All personnel shall respect the security principles and minimum standards established by Council Decision 2013/488/EU ( 1 ).

▼B

EU police officers will wear national uniforms and EU insignia as appropriate and other members of the mission will wear identification as appropriate, subject to the decision by the Head of Mission, taking into account security considerations.

Article 8

Status of EU BAM RAFAH personnel

▼M7

Where required, the status of EU BAM Rafah personnel, including, where appropriate, the privileges, immunities and further guarantees necessary for the completion and smooth functioning of EU BAM Rafah shall be subject of an agreement to be concluded in accordance with the procedure laid down in Article 218 of the Treaty on the Functioning of the European Union.

▼B

Member State or EU institution having seconded a staff member shall be responsible for answering any claims, from or concerning the staff member, linked to the secondment. The Member State or EU institution in question shall be responsible for bringing any action against the secondee.

▼M11

The conditions of employment and the rights and obligations of international and local staff shall be laid down in the contracts to be concluded between EU BAM Rafah and the staff member concerned.

▼M3

Article 9

Chain of Command

EU BAM Rafah shall have a unified chain of command, as a crisis management operation.

Under the responsibility of the Council, the PSC shall exercise political control and strategic direction of EU BAM Rafah.

▼M7

The Civilian Operation Commander, under the political control and strategic direction of the PSC and the overall authority of the HR, is the commander of EU BAM Rafah at strategic level and, as such, shall issue instructions to the Head of Mission and provide him with advice and technical support.

The Civilian Operation Commander shall report to the Council through the HR.

▼M3

The Head of Mission shall exercise command and control of EU BAM Rafah at theatre level and shall be directly responsible to the Civilian Operation Commander.

Article 10

Political control and strategic direction

▼M8

The PSC shall exercise, under the responsibility of the Council and the HR, political control and strategic direction of the mission. The Council hereby authorises the PSC to take the relevant decisions for this purpose in accordance with Article 38 of the Treaty. This authorisation shall include the powers to appoint a Head of Mission, upon a proposal from the HR, and to amend the OPLAN. It shall also include powers to take subsequent decisions regarding the appointment of the Head of Mission. The powers of decision with respect to the objectives and termination of the mission shall remain vested in the Council.

▼M3

The PSC shall report to the Council at regular intervals.

The PSC shall receive on a regular basis and as required reports by the Civilian Operation Commander and the Head of Mission on issues within their areas of responsibility.

▼B

Article 11

Participation of third States

Without prejudice to the decision-making autonomy of the EU and its single institutional framework, acceding States shall be invited and third States may be invited to contribute to EU BAM Rafah, provided that they bear the cost of the staff seconded by them, including salaries, medical coverage, allowances, high-risk insurance and travel expenses to and from the mission area, and contribute to the running costs of EU BAM Rafah, as appropriate.

Third States making contributions to EU BAM Rafah shall have the same rights and obligations in terms of day-to-day management of the mission as Member States taking part in the mission.

The Council hereby authorises the PSC to take the relevant decisions regarding the participation of third States, including their proposed contributions and to establish a Committee of Contributors.

▼M7

Detailed arrangements regarding the participation of third States shall be subject of an agreement to be concluded in accordance with the procedures laid down in Article 218 of the Treaty on the Functioning of the European Union. Where the EU and a third State have concluded an agreement establishing a framework for the participation of this third State in the EU crisis management operations, the provisions of such an agreement shall apply in the context of EU BAM Rafah.

▼M9

Article 12

Security

The Civilian Operation Commander shall direct the Head of Mission’s planning of security measures and ensure their proper and effective implementation for EU BAM Rafah in accordance with Articles 5 and 9, in coordination with the Security Directorate of the European External Action Service (EEAS).

The Head of Mission shall be responsible for the security of EU BAM Rafah and for ensuring compliance with minimum security requirements applicable to EU BAM Rafah, in line with the policy of the Union on the security of personnel deployed outside the Union in an operational capacity under Title V of the Treaty and its supporting instruments.

The Head of Mission shall be assisted by a Senior Mission Security Officer (SMSO), who shall report to the Head of Mission and also maintain a close functional relationship with the Security Directorate of the EEAS.

EU BAM Rafah staff shall undergo mandatory security training before taking up their duties, in accordance with the OPLAN. They shall also receive regular in-theatre refresher training organised by the SMSO.

▼M11

Article 12a

Legal arrangements

EU BAM Rafah shall have the capacity to procure services and supplies, to enter into contracts and administrative arrangements, to employ staff, to hold bank accounts, to acquire and dispose of assets and to discharge its liabilities, and to be a party to legal proceedings, as required in order to implement this Joint Action.

▼M12

Article 13

Financial arrangements

▼M13

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 25 November 2005 to 31 December 2011 shall be EUR 21 570 000 .

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 January 2012 to 30 June 2012 shall be EUR 970 000 .

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2012 to 30 June 2013 shall be EUR 980 000 .

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2013 to 30 June 2014 shall be EUR 940 000 .

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2014 to 30 June 2015 shall be EUR 940 000 .

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2015 to 30 June 2016 shall be EUR 1 270 000 .

▼M14

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2016 to 30 June 2017 shall be EUR 1 545 000 .

▼M15

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2017 to 30 June 2018 shall be EUR 1 980 000 .

▼M16

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2018 to 30 June 2019 shall be EUR 2 040 000 .

▼M17

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2019 to 30 June 2020 shall be EUR 2 150 000 .

▼M18

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2020 to 30 June 2021 shall be EUR 2 180 000,00 .

▼M19

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2021 to 30 June 2022 shall be EUR 2 460 000 .

▼M20

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2022 to 30 June 2023 shall be EUR 2 570 000 .

▼M21

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2023 to 30 June 2024 shall be EUR 2 360 000 .

▼M23

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2024 to 30 June 2025 shall be EUR 4 323 805,94 .

▼M24

The financial reference amount intended to cover the expenditure related to EU BAM Rafah for the period from 1 July 2025 to 30 June 2026 shall be EUR 7 493 238,13 .

▼M12

All expenditure shall be managed in accordance with the procedures and rules applicable to the general budget of the European Union. Nationals of third States contributing financially to the Mission, host parties and, if required for the operational needs of the Mission, of neighbouring countries shall be allowed to tender for contracts.

EU BAM Rafah shall be responsible for the implementation of its budget. For that purpose, EU BAM Rafah shall sign an agreement with the Commission.

EU BAM Rafah shall be responsible for any claims and obligations arising from the implementation of the mandate starting from 1 July 2014, with the exception of any claims relating to serious misconduct by the Head of Mission, for which he/she shall bear the responsibility.

The implementation of the financial arrangements will be without prejudice to the chain of command as provided for in Articles 4, 4a and 5 and the operational requirements of EU BAM Rafah, including compatibility of equipment and interoperability of its teams.

Expenditure shall be eligible as of the date of entry into force of this Joint Action.

▼M24

Article 13a

Project Cell

EU BAM Rafah shall have a Project Cell for identifying and implementing projects which are consistent with the Mission’s objectives and which facilitate the mandate’s delivery. EU BAM Rafah shall, as appropriate, facilitate and provide advice on projects, implemented by Member States and third States, under their responsibility in areas related to EU BAM Rafah and in support of its objectives.

Subject to paragraph 3, EU BAM Rafah shall be authorised to seek recourse to financial contributions from the Union and Member States or third States to implement projects identified as supplementing in a consistent manner EU BAM Rafah’s other actions, where the projects are:

(a)

provided for in the financial statement relating to this Decision; or

(b)

integrated during the mandate by means of an amendment to the financial statement requested by the Head of Mission.

Once the Commission or those States have formally proposed that their financial contribution be managed by EU BAM Rafah, EU BAM Rafah shall conclude an arrangement with the Commission or those States, covering in particular the specific procedures for dealing with any complaint from third parties concerning damage caused as a result of acts or omissions by EU BAM Rafah in the use of the funds provided by those States.

Under no circumstances may the contributing States hold the Union or the HR liable for acts or omissions by EU BAM Rafah in the use of the funds provided by those States.

Financial contributions from the Union, the Member States or third States to the Project Cell shall be subject to acceptance by the PSC.

▼B

Article 14

Community action

▼M7

The Council and the Commission shall, each in accordance with their respective powers, ensure consistency between the implementation of this Joint Action and Union’s external action in accordance with Article 21(3) of the Treaty. The Council and the Commission shall cooperate to this end.

▼B

The necessary coordination arrangements shall be put in place in the mission area, as appropriate, as well as in Brussels.

▼M7

Article 15

Release of classified information

The HR is authorised to release to third States associated with this Joint Action, as appropriate and in accordance with the operational needs of the mission, EU classified information and documents up to the level ‘RESTREINT UE’ generated for the purposes of the mission, in accordance with the Council’s security regulations.

In the event of a specific and immediate operational need, the HR is also authorised to release to the local authorities EU classified information and documents up to the level ‘RESTREINT UE’ generated for the purposes of the mission, in accordance with the Council’s security regulations. In all other cases, such information and documents shall be released to the local authorities in accordance with the procedures appropriate to their level of cooperation with the EU.

The HR is authorised to release to third States associated with this Joint Action and to the local authorities EU non-classified documents related to the deliberations of the Council with regard to the mission covered by the obligation of professional secrecy pursuant to Article 6(1) of the Council’s Rules of Procedure ( 2 ).

▼M3

Article 15a

Watch-Keeping

The Watch-Keeping Capability shall be activated for EU BAM Rafah.

▼M5

Article 16

Entry into force

This Joint Action shall enter into force on the date of its adoption.

▼M24

It shall expire on 30 June 2026.

▼M11 —————

▼B

Article 18

Publication

This Joint Action shall be published in the Official Journal of the European Union.

▼M3

The Decisions of the PSC pursuant to Article 10(1), regarding the appointment of the Head of Mission, shall also be published in the Official Journal of the European Union.

▼M7 —————

( 1 ) Council Decision 2013/488/EU of 23 September 2013 on the security rules for protecting EU classified information (OJ L 274, 15.10.2013, p. 1).

( 2 ) Council Decision 2009/937/EU of 1 December 2009 adopting the Council’s Rules of Procedure (OJ L 325, 11.12.2009, p. 35).

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