EUROPEAN COMMISSION

Brussels, 29.11.2024

SWD(2024) 267 final

COMMISSION STAFF WORKING DOCUMENT

Accompanying the document

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL

2024 Annual Report on the implementation of the European Union's External Action Instruments in 2023

{COM(2024) 548 final}

Table of contents

1. Introduction: EU response to world developments in 2023    

1.1.The EU response to Russia’s war of aggression against Ukraine (including support to Ukraine and partner countries in addressing the global consequences)

1.2. EU enlargement

1.3.European Neighbourhood Policy

1.4.International Partnerships

1.5.Humanitarian aid and civil protection

1.6.Security and defence

1.7.Peace, stability and conflict prevention

1.8.Human rights and democracy

2.    Delivering on our commitments: Promoting EU values and interests and fostering sustainable development globally    

2.1.Global Gateway

2.2.A ‘Team Europe’ approach

2.3. Implementing the 2030 Agenda and other international and European commitments and policies

2.4.Means of implementation

2.5.Mobilisation of the NDICI-Global Europe cushion

2.6.Policy Coherence for Development

2.7. Development effectiveness

2.8. European Financial Architecture for Development (EFAD)

3.    Thematic Overview    

Working together towards the SDGs and results achieved with EU support

3.1.Human Development

3.1.1. SDG #1 Reduced Poverty    

3.1.2. SDG #2 Zero Hunger    

3.1.3. SDG #3 Good Health and Well-being    

3.1.4. SDG #4 Quality Education    

3.1.5. SDG #5 Gender Equality    

3.1.6. SDG #6 Clean Water and Sanitation    

3.1.7. SDG #10 Reduced Inequalities    

3.1.8. Other major achievements    

3.2.Green Deal

3.2.1. SDG #7 Affordable and Clean Energy    

3.2.2. SDG #11 Sustainable Cities and Communities    

3.2.3. SDG #12 Responsible Consumption and Production    

3.2.4. SDG #13 Climate Action    

3.2.5. SDG #14 Life below Water    

3.2.6. SDG #15 Life on Land    

3.2.7. Other major achievements    

3.3.Digitalisation, Science, Technology and Innovation

3.3.1. SDG #9 Industry, Innovation and Infrastructure    

3.3.2. Other major achievements    

3.4.Sustainable Growth and Jobs

3.4.1. SDG #8 Decent Work and Economic Growth    

3.5.Migration and forced displacement

3.5.1. SDG #10.7 Reduced Inequalities    

3.6.Governance, Peace and Security

3.6.1. SDG #16 Peace, justice and strong institutions    

4.    Geographic Overview    

4.1.Sub-Saharan Africa

4.1.1.    Introduction (policy developments)    

4.1.2.    Implementation    

4.1.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters    

4.1.4.    Crisis response and preparedness    

4.2.Asia and the Pacific

4.2.1.    East Asia and South Asia    

4.2.2.    Central Asia    

4.2.3.    Middle East/Gulf region    

4.2.4.    The Pacific    

4.3.Americas and the Caribbean

4.3.1.    Americas    

4.3.2.    The Caribbean    

4.4.European Neighbourhood

4.4.1.    European Neighbourhood East    

4.4.2.    European Neighbourhood South    

4.5.Western Balkans and Türkiye

4.5.1.    Introduction (policy developments)    

4.5.2.    Implementation    

4.5.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters    

4.5.4.    Crisis response and preparedness    

4.6.Overseas countries and territories (OCTs)

4.6.1.    Introduction (policy developments)    

4.6.2.    Implementation    

5.    Managing Aid    

5.1.Monitoring, reporting and evaluation

5.1.1.    Reporting    

5.1.2.    Monitoring Systems    

5.1.3.    Reporting on Sustainable Development Goals (SDGs)    

5.1.4.    Evaluation: review of the work programme    

5.1.5.    Lessons learned    

5.2.Aid delivery modalities

5.2.1.    Budget Support    

5.2.2.    Blending    

5.2.3.    EFSD+, EU budget Guarantees    

5.2.4.    Technical Assistance    

5.2.5.    Twinning and TAIEX    

5.3.Improving ways of working

5.3.1.    Simplification of procedures    

5.4.Communication & transparency

5.4.1.    Communication    

5.4.2.    Transparency    

5.4.3.    Learning    

6. Results annexes    

6.1. Introduction

6.2. Methodological basis for selected results reported against the Global Europe Results Framework, the EU Results Framework, the IPA III Results Framework and the IPA Performance Framework

6.2.1. Structure of the corporate results framework    

6.3. Level 2 indicators: Reporting on partner country results supported by the EU (EU RF, IPA PF and IPA III)

6.4. Level 3: Reporting on policy mainstreaming as measured by budgetary commitments

6.5. Latest results

6.6. Results of the implementation of the Gender Action Plan III

7.    Budget Support Annexes    

8.    Financial Annexes    

8.1.EU external assistance in 2023

8.1.1.    Introduction to financial tables    

8.1.2.    Financial tables    

Table of Abbreviations    

1. Introduction: EU response to world developments in 2023

This report highlights the key elements of the EU’s foreign policy in 2023, focusing on financial support for international partnerships, humanitarian aid, security and defence, foreign policy and enlargement in 2023. It details the progress and adjustments in the multiannual financial framework for 2021-2027, particularly the Neighbourhood, Development, and International Cooperation Instrument-Global Europe (NDICI-Global Europe), alongside other instruments like humanitarian aid and the Instrument for Pre-accession Assistance (IPA III), the Common Foreign and Security Policy (CFSP) and the European Peace Facility (EPF).

In 2023, the EU’s foreign policy landscape was predominantly shaped by the two devastating wars unfolding on Europe’s borders. On the one hand, Russia’s full-scale war of aggression against Ukraine, which continues to pose a serious security threat to the European Union and the international rules-based order. On the other hand, a new war in the Middle East as a consequence of the large-scale terrorist attacks perpetrated by Hamas against Israel on 7 October, that has flared up in Gaza. Both of these conflicts directly put the security of the EU at risk. These two unfolding tragedies took place in a context of rising geopolitical tensions globally, including various crises in Sub-Saharan Africa.

These developments negatively impacted the functioning of the multilateral system and impaired international cooperation at a moment when it is needed the most to address intensifying global challenges such as climate change, nuclear non-proliferation and inequality, in parallel with the momentous transformations required to advance the global green and digital transitions.

In this challenging global context, the continuous attempts by foreign actors, such as Russia, to manipulate and interfere in the information environment added further fuel to fire. Foreign information manipulation and interference (FIMI) has become a key instrument for authoritarian states in their efforts to fracture and undermine democratic societies. Throughout the year, the EU continued to reinforce its ability to tackle this serious political and security threat, working closely with its Member States, international partners and civil society organisations.

The European Union continued to stand with Ukraine and the Ukrainian people, providing unprecedented political, financial, humanitarian, legal and military support while progressive sanctions aimed to further weaken Russia`s war machine. Granting Ukraine candidate status in 2023 gave a new impetus to the EU enlargement process and provided Ukraine with the most important security commitment the EU can provide: the perspective of EU membership.

A significant development in 2023 was the continued implementation of the EU’s Global Gateway strategy, which emphasises sustainable global connectivity through infrastructure investment. The cooperation between the European and African Unions, especially with the Africa-Europe investment package, advanced significantly. The EU is Africa’s leading partner in many areas: from trade, investment and security to green transition and digital transformation. The EU has supported the African Union’s request for a structured participation in the G20, thus contributing to its full integration into this multilateral forum.

The EU’s humanitarian efforts, including the European Humanitarian Response Capacity, adapted to the shifting landscape of global crises, focusing on immediate response to both ongoing and emerging humanitarian emergencies.

Migration management also continued to remain a priority for the European Union, which required a coordinated European response and increased efforts to strengthen partnerships with origin and transit countries, embedding migration within broader cooperation frameworks.

In the realm of enlargement and neighbourhood policy, 2023 saw notable developments in the EU’s relationships with Ukraine, Republic of Moldova( 1 ) and Georgia. Ukraine and Moldova were granted candidate status in June 2022 and the European Council decided in December 2023 to open formal accession negotiations. In addition, Georgia was recommended to start accession negotiations, contingent on meeting certain specified conditions.

The EU continued its support to democracy and human rights across the world, deploying several election observation missions in 2023. These missions were conducted in Nigeria, Zimbabwe, Maldives, Guatemala, Paraguay, Liberia and Sierra Leone, providing comprehensive, independent and impartial assessment of electoral processes, and recommendations for improving the integrity and effectiveness of future electoral processes and of the wider process of democratisation in these nations.

The EU's ongoing commitment to global security and defence was also evident through several aspects throughout the year; acting for more flexible and responsive engagement with the launch of several new missions and operations in neighbouring countries as well as in Africa and the Red Sea. This commitment was characterised by the following objectives: securing against threats through countering hybrid threats and FIMI; countering terrorism and promoting disarmament; and investing to strengthen the EU’s defence readiness and to ramp up the EU defence industry. This further strengthens the EU as a strong global and multilateral partner, highlighted via initiatives such as the Schuman Security and Defence Forum.

1.1.    The EU response to Russia’s war of aggression against Ukraine (including support to Ukraine and partner countries in addressing the global consequences)

Russia’s war of aggression against Ukraine and its geopolitical consequences continued to be the key issue in 2023.

Demonstrating its unwavering backing for Ukraine, the EU stepped up political, military, humanitarian, legal, diplomatic and financial support for the country. In 2023, the EU budget enabled EUR 19.5 billion in assistance to Ukraine, including an unprecedented support package of EUR 18 billion in concessional loans under the Macro-Financial Assistance + instrument. The EU also mobilised EUR 1 billion for fast recovery, while guarantee agreements signed with international financial institutions have the potential capacity to unlock over EUR 800 million in investments from the Ukrainian private sector for the recovery and reconstruction of the country’s economy. EU Member States provided EUR 28 billion of military support, including via the European Peace Facility.

In addition, the EU provided unprecedented humanitarian and civil protection assistance aimed at alleviating the suffering of the population and restoration of basic livelihood conditions in war-affected regions. Russia’s war of aggression caused unprecedented human suffering and destruction of physical infrastructure. The EU has mobilised EUR 300 million in humanitarian assistance in Ukraine for 2023 and EUR 20 million for Moldova. Nearly 11 million people across Ukraine( 2 ), including in hard-hit areas, have received humanitarian support in Ukraine thanks to the EU and other donors. EU humanitarian funding is helping people inside Ukraine by providing them with food, water, essential household items, health care, including mental health and psychological support, emergency and winterised shelter, protection, including education in emergencies, and cash assistance to help cover their basic needs. The EU continued the largest, longest and most complex Union Civil Protection Mechanism (UCPM) operation in history, coordinated by the Emergency Response Crisis Centre (ERCC). The EU activated immediately the Temporary Protection Directive giving people fleeing the war in Ukraine residency rights, access to the labour market, and means to access suitable accommodation, medical care, and education for children in the EU. EU countries have welcomed over four million people under this temporary protection scheme. The Commission has introduced maximum flexibility so that Member States can support people fleeing the war using unspent cohesion funds, thus making available up to EUR 17 billion from both the EU and its Member States.

The EU’s response to Russia’s war of aggression against Ukraine continued to be united and determined. Following the recommendation from the Commission, in December 2023 the European Council decided to open accession negotiations with Ukraine. This historic decision taken by EU leaders was a major milestone in EU-Ukraine relations and for future EU support. In parallel, the EU and Ukraine further strengthened EU-Ukraine relations through exploiting fully the potential of the EU-Ukraine Association Agreement including the Deep and Comprehensive Free Trade Agreement (DCFTA).

The Commission also proposed to establish a dedicated financing instrument – the Ukraine Facility – of up to EUR 50 billion to provide predictable and flexible support to Ukraine for the period 2024 to 2027 to support its recovery, reconstruction and modernisation, in line with its EU path. The Facility will cater both for short-term State and recovery needs and medium-term reconstruction and modernisation of Ukraine linked with EU accession. It will support the transition towards a green, digital and inclusive economy that is progressively aligned with EU rules and standards. The Ukraine Plan, prepared by the Ukrainian government and endorsed by the EU, stands as the main tool for implementation of the Ukraine Facility with carefully calibrated and sequenced reforms and investments that promote economic growth, and at the same time support Ukraine’s European path.

The Commission led the coordination efforts between Ukraine’s donors and established jointly with Ukraine and other key partners the G7 Multi-Agency Donor Coordination Platform in January 2023. Its role is to coordinate short- and long-term support for Ukraine’s relief and reconstruction among major donors. The platform is co-chaired by Ukraine, the EU and the US. Members of the platform are all G7 partners as well as International Financial Institutions like the European Investment Bank (EIB), European Bank for Reconstruction and Development (EBRD), World Bank and IMF. The secretariat is shared between the EU (hosted at the Commission) and Ukraine.

The 27 EU Member States and their partners around the world condemned the unprovoked and unjustified war of aggression, and acted to isolate Russia politically and economically. The EU also condemned the reported violations of international humanitarian law, international human rights law, and international crimes.

During 2023, in close coordination with the G7 and other partners, the EU adopted three additional packages of sanctions against those responsible for Russia’s continuing war of aggression against Ukraine, and cracked down on circumvention. By the end of 2023, the EU had adopted a total of 12 packages of sanctions which include individual measures against over 1 950 individuals and entities altogether as well as sectoral measures, including export controls, restrictions on the transport, energy, trade, finance and other sectors. Cooperation among Member States and with the Union’s partners in the enforcement of sanctions, and notably asset freezes, was enhanced via the activities of the Freeze and Seize Task Force, which was established by the Commission in March 2022.

The EU also delivered two comprehensive support packages to Moldova( 3 ), particularly to address the impact on the country from Russia’s war of aggression against Ukraine.

At the same time, the consequences of Russia’s war against Ukraine continued to impact all regions of the world, affecting food and energy prices and exacerbating fiscal fragilities. Over EUR 2 billion including contributions by the Commission, the EIB, EBRD, and the World Bank has been mobilised to scale up the Solidarity Lanes, set out in May 2022 in order to ensure that Ukraine can export grain and other agricultural products, as well as import the goods it needs, from humanitarian aid to animal feed and fertilisers. Furthermore, the EU supported the UN-led efforts and those of Türkiye to find an alternative solution to the Black Sea Grain Initiative (from which Russia withdrew in July 2023) that would allow the freedom of navigation in the Black Sea region and more grain to flow to the countries most in need. In a ‘Team Europe’ approach( 4 ), the EU and its Member States have committed EUR 18 billion in grants for the period 2021 – 2024 to support food security in partner countries, of which over EUR 13.5 billion have been disbursed (EUR 7.5 million in 2022 and EUR 6.1 million in 2023.

1.2.    EU enlargement 

Russia’s war of aggression against Ukraine has changed the course of European history. The European Union has responded with unprecedented strength and unity. On 6 October 2023, at the informal meeting of heads of state or government in Granada, EU leaders reconfirmed enlargement as a geo-strategic investment in peace, security, stability and prosperity( 5 ). They highlighted that aspiring members need to step up their reform efforts, notably in the area of rule of law, in line with the merit-based nature of the accession process and with the assistance of the EU. In parallel, the Union needs to lay the necessary internal groundwork and reforms for further enlargement, to complete the European Union.

The analytical reports( 6 ) completing the European Commission's opinions( 7 ) on the membership application of Ukraine, Moldova and Georgia were issued on 1 February 2023. Following the decision of the European Council to recognise the European perspective of Ukraine, Moldova and Georgia and to grant the status of EU candidate country to Ukraine and Moldova, on 22 June 2023 the Commission presented an oral update on the progress made by the three countries on the steps and priorities set by the European Council.

On 8 November 2023, the European Commission adopted the 2023 enlargement package( 8 ). As in previous years, the Commission took stock of developments since the previous enlargement package adopted in October 2022( 9 ). It examined the progress made by the Western Balkans and Türkiye and – for the first time – Ukraine, Moldova and Georgia, the challenges encountered and reforms to be addressed, and set out conclusions and recommendations for the period ahead.

In line with the Commission's recommendations, in December 2023, the European Council decided( 10 ) to open accession negotiations with Ukraine and Moldova, to grant candidate status to Georgia on the understanding that relevant steps are taken, and to open accession negotiations with Bosnia and Herzegovina once the necessary degree of compliance with the membership criteria is achieved.

Regarding the Western Balkans, the analytical examination of the EU acquis (screening) continued with both Albania and North Macedonia throughout 2023 and the meetings were completed at the end of the year. The Commission submitted to the Council its reports regarding the first cluster, also known as the Fundamentals cluster in July 2023. For Albania, the Commission also submitted its report on the implementation of the opening benchmarks for the fundamentals cluster in December 2023. The EU agreed in spring 2023 on visa liberalisation for Kosovo 11*, applicable from 1 January 2024. Montenegro and Serbia continued with accession negotiations in line with their respective negotiating frameworks.

At the beginning of 2023, the European Commission prepared at record speed the EUR 1 billion Energy Support Package for the Western Balkans( 12 ), which had been announced in December 2022 to address the immediate, short-term and medium-term needs in the region. The substantial support package helped the Western Balkan partners to handle increased energy prices and to begin decreasing their dependence on Russian fossil fuels, accelerate decarbonisation and improve the region’s energy security. EUR 450 million (90 % of the budget support package) was disbursed already in early 2023 to cater for the most urgent needs and push for needed reforms.

The Economic and Investment Plan (EIP) for the Western Balkans( 13 ) continued to bridge the socio-economic gap between the region and the EU and to help its green and digital transition. By 2023, the Western Balkans Investment Framework Board endorsed 59 flagship investments focusing on sustainable transport, renewable energy, education, health, environmental protection, and private sector development.

On 8 November the Commission also adopted its proposal for a new Growth Plan for the Western Balkans( 14 ), which has the double objective of boosting the Western Balkan’s socio-economic convergence with the EU and accelerating the accession process. It is based on four pillars aimed at: bringing the Western Balkans closer to the EU Single Market, deepening the regional economic integration, accelerating fundamental reforms and increasing funding. As to the latter, the Growth Plan proposed a Regulation for a Reform and Growth Facility for the Western Balkans, which would support the reform efforts with EUR 6 billion in loans and grants.

Two high-level geopolitical dialogues were held between the European Commission and the European Parliament in 2023 (May and November) to discuss the implementation of IPA III( 15 ), the Commission’s proposal for the Western Balkans Growth Plan and the new Reform and Growth Facility.

The commitment of the EU and its Member States to close cooperation with the region was also underlined in the various summits held in 2023. The Berlin Process Summit on 16 October 2023, held for the first time in the region – in Tirana, saw progress in the Common Regional Market, with the signature of the Agreement on recognition for professional qualifications for midwives, vets, nurses and pharmacists and a number of joint statements related to regional cooperation. It was also an opportunity to inaugurate the representation office of the College of Europe in Tirana. On 12 December 2023 EU and Western Balkans leaders met in Brussels for their fourth annual EU-Western Balkans summit. The summit was an opportunity to reaffirm the EU membership perspective of the Western Balkans and also the need for partners’ sustained and irreversible reform achievements, underpinned by EU values and principles. It also presented the first opportunity to discuss the Growth Plan with leaders following its adoption by the Commission.

Türkiye is a key partner of the EU and a candidate country. The European Union has a strategic interest in a stable and secure environment in the Eastern Mediterranean and in the development of a cooperative and mutually beneficial relationship with Türkiye. Since 2021, following the guidelines of the European Council, the focus in EU-Türkiye relations has shifted to concrete steps towards re-engagement.

On 29 November 2023, the Commission and the High Representative adopted a Joint Communication on the State of play of the EU-Türkiye political, economic and trade relations( 16 ), which includes a number of recommendations for energising key areas of cooperation in a phased, proportionate and reversible manner, provided that de-escalation of tensions is sustained, that Türkiye engages constructively, and subject to the established conditions set out in European Council Conclusions( 17 ).

The 2016 EU-Turkey Joint Statement( 18 ) continued to yield results and remained the key framework for cooperation on migration. Türkiye sustained its remarkable efforts to host close to four million refugees from Syria and other countries.

1.3.    European Neighbourhood Policy

In the context of Russia's war of aggression against Ukraine, the EU continued to assist Neighbourhood countries in tackling the causes of instability. In 2023, the European Neighbourhood Policy (ENP) mobilised significant political and financial support for its four priorities( 19 ). Given the global impact of Russia’s war in Ukraine, some priority domains, in particular energy and food security, continued to require specific focus. The political situation in the Southern Neighbourhood has become highly volatile following the Israel-Hamas war with fear of spillovers throughout the Middle East.

In that respect, and in order to mitigate the consequences of Russia’s war of aggression against Ukraine, the EU set up a ‘Food and Resilience Facility’ to support the most affected among the Southern Neighbourhood partners. Under this fund, EUR 225 million are being deployed, tailored to the needs of countries in the region highly dependent on food imports disrupted by the war. Egypt is the biggest beneficiary, with EUR 100 million to help expand wheat and grain production and storage capacity.

Eastern Partnership

In a landmark decision( 20 ), in December 2023 the European Council decided to open accession negotiations with Ukraine and Moldova and to grant EU candidate status to Georgia.

Against the backdrop of Russia's ongoing war of aggression against Ukraine and other challenges in the region, the Eastern Partnership delivered results with impact on the lives of people on the ground. At the December 2023 Eastern Partnership Foreign Affairs Ministerial, Member States and partners reiterated their support for the Eastern Partnership as a framework to address existing challenges and promote shared interests. They also agreed that as we move forward, the Eastern Partnership should remain flexible and offer a tailored approach to each country, ensuring complementarity between bilateral and regional cooperation and in synergy with the enlargement aspirations of Ukraine, Moldova and Georgia. Looking forward, the new political context has paved the way for renewed efforts to strengthen links with Central Asia and the Black Sea region, notably in the area of connectivity (transport, energy, and digital), as well as with the Western Balkans on the enlargement dimension. In parallel, regional programmes across different sectors continued. The 2023 regional action programme contributed to stronger resilience, supported green and digital transitions, delivered on key reforms, including tackling corruption and organised crime, and provided the tools to effectively monitor good governance and the rule of law in the region.

The Russian war of aggression against Ukraine continued to cause unprecedented human suffering and destruction of physical infrastructure. The European Commission stepped up its engagement with Ukraine, including political dialogue and financial support, based on a new instrument, the Ukraine Facility that will provide EUR 50 billion to Ukraine over the 2024-2027 period. The Facility will cater both for short-term State and recovery needs, and medium-term reconstruction and modernisation of Ukraine linked with EU accession. It will support the transition towards a green, digital and inclusive economy that is progressively aligned with EU rules and standards. The European Commission led the coordination efforts made by Ukraine’s donors and, in January 2023, established - jointly with Ukraine and other key partners - the G7 Multi-Agency Donor Coordination Platform.

Following Azerbaijan’s military operation in Nagorno-Karabakh in September 2023 and the subsequent displacement of over 100 000 people, the EU provided swift support to Armenia, including through humanitarian aid, budget support and the Civil Protection Mechanism. In October 2023, the European Council tasked the Commission and the High Representative to present options for strengthening relations with Armenia ‘in all their dimensions’.

The EU continued to actively roll out its Economic and Investment Plan for the Eastern Partnership, supporting its Eastern partners in their efforts to stabilise their economies at a time of unprecedented geopolitical turmoil. By December 2023, the EU contribution reached EUR 1.77 billion and, through its bilateral cooperation, its financial guarantees and its blending projects, it has unlocked EUR 8.5 billion of investments. 

Investing in human capital underpins the sustainability of economic recovery. Through regional programmes such as EU4Youth and Erasmus+ Youth, the EU supported youth employment and education opportunities.

Southern Neighbourhood

In 2023, the situation in the Southern Neighbourhood remained volatile. While the countries of the region were slowly recovering from the consequences of the COVID-19 pandemic and the Russian aggression against Ukraine, the Israel-Hamas war and its possible spillover effects added to the protracted fragilities in the neighbouring countries and increased the level of uncertainty regarding political, social and economic stability. The region continued to be strongly affected by climate change and natural disasters, such as earthquakes and floods. The signature of the Memorandum of Understanding on a strategic and global partnership between the EU and Tunisia, in July 2023, and the commitment to work on a Strategic and Comprehensive partnership with Egypt provided a new impetus to the cooperation with these partners.

In this context, the European Commission continued to implement the Economic and Investment Plan of the 2021 Agenda for the Mediterranean( 21 ). EUR 4 billion were committed in 2021 to 2023 (EUR 1.8 billion in 2023) that will mobilise EUR 23.8 billion in investments in the green, digital, clean energy, water and sanitation, and education sectors. In addition, the 2023 cooperation programmes addressed structural reforms, good governance and the rule of law, inclusive economic development, job creation, in particular for youth and women, education and vocational training, and social safety nets in the ten partner countries and at regional level. In total, 2021-2023 NDICI commitments for the Neighbourhood South amount to EUR 5.2 billion.

Migration and forced displacement

Migration remained high on the EU agenda, especially in the context of increased flows via the Mediterranean routes and arising conflicts in the region. The EU continued building on successful actions under the multiannual indicative programme for a Multi-country Migration Programme for the Southern Neighbourhood (as the follow-up to the EU Emergency Trust Fund for Africa). In this context, actions in the north of Africa focused on a comprehensive approach to migration, including the fight against migrant smuggling and trafficking in human beings, increased assisted voluntary returns and sustainable reintegration into countries of origin, border management, protection and legal migration. Actions were also adopted to address the needs of refugees from Syria and host communities in Lebanon and in Jordan, as well as in support of the Syrian people, focusing on resilience and early recovery needs.

In the Eastern Neighbourhood, the EU continued to address the refugee crisis stemming from Russia’s war of aggression against Ukraine, not only with humanitarian and protection measures, but also with concrete support to the transit, voluntary repatriation and reintegration of affected people, as well as support to border management in the Republic of Moldova and Ukraine.

Institution building

The European Commission’s institution building instruments contributed to the overall reform process in the European Neighbourhood in line with EU political priorities, notably the green and digital transition, and the regional Economic and Investment Plans, through high-level flagship events.

In 2023, TAIEX (Technical Assistance and Information Exchange) delivered 189 events for the Eastern Neighbourhood (with 4 459 participants from the region) – many of them in Ukraine and Moldova, and 55 for the Southern Neighbourhood (1 523 participants from the region), including in Libya (with support from Italy).

In 2023, the Twinning instrument continued to support Ukraine and Moldova as well as Algeria, with France having been involved in the latter. 2023 marked the 25th anniversary of the Twinning instrument.

1.4.    International Partnerships

In 2023, the EU scaled-up the roll out of the Global Gateway strategy, its contribution to narrowing the global investment gap and accompanying the twin green and digital transitions beyond European borders. In December 2022, the Global Gateway Board decided to make 2023 the year of implementation. Significant progress was achieved on the projects that had already been launched. Moreover, 138 new flagships were endorsed by the Council towards the end of the year, bringing the total number to 225.

The year was also marked by the first Global Gateway Forum, attended by 20 Heads of States and Governments as well as 70 ministers and numerous leaders from the private sector and civil society. The Global Gateway governance structure was operationalised, with the first-ever meetings of the Business Advisory Group and of the Civil Society and Local Authorities Dialogue Platform. And the EU held over a dozen Global Gateway business forums in partner countries to engage the private sector.

In 2023, the EU, its Member States, and the 79 Members of the African, Caribbean and Pacific States (OACPS) signed the successor to the Cotonou Agreement: the Samoa Agreement. This new framework will strengthen the capacity to address global challenges together, from sustainable development and economic growth to human rights, peace and security, climate change, migration and global health.

In July, the EU-LAC Global Gateway Investment Agenda was presented at the Summit between the EU and the Community of Latin American and the Caribbean states (CELAC), for which Team Europe committed to leverage EUR 45 billion by 2027. Over the year, the EU also concluded various strategic partnerships with partner countries in the region to further cooperation on critical raw materials, energy, digital and climate issues.

Similarly, the EU stepped up strategic engagement in the Asia-Pacific region, as well as its implementation of the EUR 150 billion Africa-Europe Global Gateway Investment Package.

Amidst renewed attacks against multilateralism, the EU redoubled its efforts to advance the Sustainable Development Goals, as illustrated by the first EU Voluntary Review( 22 ) presented at the High-Level Political Forum 2023. The EU also worked with the G7 and other partners to coordinate major infrastructure initiatives, such as the development of the Lobito corridor.

A significant step was taken towards tackling inequalities with the launch of the Inequality Marker, an innovative tool to help us better understand, track, and benchmark our impact on reducing inequalities across all our sectors of work( 23 ).

The EU and its 27 Member States collectively remained the largest provider of official development assistance (ODA) with EUR 95.9 billion in 2023, accounting for 42 % of global ODA( 24 ) (0.57 % of gross national income (GNI)) based on preliminary OECD data.

1.5.    Humanitarian aid and civil protection

The year 2023 was largely marked by the humanitarian impact of Russia’s war of aggression against Ukraine and by the escalation of hostilities in the Middle East, with the conflict in and around Gaza at its centre. It also witnessed the dramatic consequences of the ongoing conflict in Sudan and the protracted complex crises in the Sahel.

The humanitarian situation also continued to drastically deteriorate in many other parts of the world, due to persistent conflict and insecurity, the impact of climate change, failed governance, and the war of aggression against Ukraine, resulting in unprecedented levels of humanitarian needs. According to the UN OCHA Global Humanitarian Overview 2023, updated in December 2023( 25 ), 363.3 million people were estimated to be in need of humanitarian assistance and protection, an increase of 11.4 % as compared to 2022( 26 ). The EU remained a key global humanitarian donor, provided humanitarian assistance of over EUR 2 416.7 million in more than 100 countries( 27 ), and teamed up and engaged with Member States to assist effectively and adequately people in need. The EU pursued its promotion and systematic public advocacy for compliance with international humanitarian law (IHL) and principled humanitarian space, including through public statements, interventions in multilateral fora and high-level events, as well as through bilateral advocacy. The EU’s humanitarian aid has also focused on funding initiatives on strengthening the monitoring of IHL violations to reinforce evidence-based humanitarian diplomacy.

The European Commission continued its efforts to address an unprecedented global food crisis through a comprehensive ‘Team Europe’ response strategy. As part of this initiative, in 2023, the EU allocated over EUR 670 million to humanitarian food and nutrition assistance, well above the EU’s commitment under the Food Assistance Convention. The European Commission continued also its strong commitment to forgotten crises, allocating 17 % of the initial 2023 budget (EUR 286 million) to such crises. The EU remained engaged in education in emergencies, dedicating 10 % of the initial humanitarian aid budget (EUR 162 million) to support access to safe and quality learning for children and adolescents affected by crises. The EU funded actions to protect children in situations of armed conflict, to prevent, respond to and end grave violations( 28 ). The EU support included case management of children and specific support to children that had been associated with armed forces and armed groups in their reintegration, training to armed groups on children’s rights, national dialogue on children and armed conflict, capacity building, monitoring, and awareness raising among communities and parties to the crisis, and support to the UN Monitoring and Reporting Mechanism. In addition the European Commission dedicated EUR 334 million to providing access to quality health care to those most in need, while half of the global population is still not covered by essential health services( 29 ).

The EU continued the support to projects targeting children affected by armed conflict such as  empowering survivors of conflict related sexual violence in South Sudan, enhancing protective environments for children at risk of recruitment by armed forces in Colombia,  preventing and responding to violence against children by terrorist and violent extremist groups in Iraq, Indonesia and Nigeria, promoting the protection of children, adolescents and young people in Northern Mozambique, and strengthening community leadership in Technical and Vocational Education and Training and for conflict-affected children and youth in Myanmar.

The European Humanitarian Response Capacity (EHRC) responded to 16 crises affecting 15 countries( 30 ) and allocated EUR 56 million for the development and deployment of EHRC capacities and services( 31 ), including Humanitarian Air Bridge operations. It delivered humanitarian goods and transported humanitarian workers to hard-to-reach areas where assistance could otherwise not be delivered. A total of EUR 42.95 million in humanitarian emergency funding was mobilised through the Emergency Toolbox( 32 ) to respond to unforeseen events around the world in 2023.

As regards civil protection, in relation to the wider discussions on EU crisis management structures, a priority in 2023 was to further consolidate and expand the central role of the Emergency Response Coordination Centre (ERCC) as a 24/7 single operational hub managing and facilitating the EU’s swift and effective response to a broad range of cross-sectoral crises at home and around the world, as well as improving the ERCC’s anticipatory planning and foresight capacities and capabilities. The European Commission strengthened further the UCPM response by ensuring full implementation of the revised legislation( 33 ).

The European Commission successfully negotiated the enlargement of the UCPM to include two new Participating States (Ukraine and Moldova).

The European Commission strengthened its own strategic ‘rescEU’ reserve of capacities at EU level, including medical and Chemical Biological, Radiological and Nuclear (CBRN) equipment and has created a donations hub in Poland to facilitate donations to Ukraine, from the private sector as well as from G7 partners. The ERCC conducted an advisory mission to Ukraine to assess  and support Ukraine’s emergency services ability to respond to CBRN hazards and evaluate needs for strengthening response and preparedness activities.

In addition to the activation of the UCPM for the continuation of the large-scale and logistically challenging operations in Ukraine, the mechanism was activated 65 times in 2023 for various natural and human induced disasters. Several large operations proved very complex, such as the response to the major earthquakes in Türkiye and Syria in February 2023 (the largest and most comprehensive UCPM response to this type of disaster to date). The UCPM also responded in complex emergencies in Syria, Libya (dam break) and the conflict in the Middle East. In 2023, the UCPM had a 94 % response rate to requests submitted to the Mechanism.

Lastly, the European Humanitarian Forum (co-organised with the Swedish Presidency of the Council in March 2023), the High-level Conference on Education in Emergencies (co-organised with UNICEF in March 2023), and the Seventh European Civil Protection Forum were occasions to re-affirm the EU leadership and engagement on humanitarian aid and civil protection.

In May 2023, moreover, the Council adopted Conclusions( 34 ) on the humanitarian funding gap, which inter alia set out a voluntary target for Member States of devoting 0.07 % of their gross national income (GNI) to humanitarian assistance, in the context of the established 0.7 % of GNI target for official development assistance.

1.6.    Security and defence

Russia’s war of aggression against Ukraine had a shattering effect on European security. Hamas’ terrorist attacks on 7 October and the ensuing war in Gaza significantly impacted security and stability in the EU, the Southern Neighbourhood and beyond. In a ‘Team Europe’ approach, the EU strengthened its capacity to respond to security challenges and consolidate its role as a security provider.

In 2023, the EU and Member States continued the implementation of the Strategic Compass, which sets out the EU’s ambitions over the next five to ten years in the field of security and defence. This second year of implementation has seen scaling up of assistance and initiatives to support Ukraine militarily. This included training of close to 40 000 Ukrainian military personnel and the capacity building of Ukrainian armed forces through the EU Military Assistance Mission. Two top-ups of the European Peace Facility were decided to allow for stronger support to Ukraine. The EU also launched an ambitious three-track initiative to produce 1 million rounds of artillery ammunition and missiles in support of Ukraine. By the end of 2023, the total value of military support provided to Ukraine was approximately EUR 28 billion, including EUR 6.1 billion of lethal and non-lethal equipment via the European Peace Facility, including the ammunition initiative. The EU Advisory Mission in Ukraine continued to support Ukrainian law enforcement and security sector reform on the ground. The EU’s resolve and commitment to support Ukraine for as long as it takes remained unabated.

Since Russia’s war of aggression against Ukraine, massive structural changes have been taking place to boost the European defence industrial and technological base, building on developments from 2017. In October 2023, to continue supporting Ukraine and boost defence readiness, the EU adopted the European Defence Industrial Reinforcement and Procurement Act (joint procurement) and the Act in Support of Ammunition Production (ramp up). The implementation of key capability projects in the framework of the Permanent Structured Cooperation continued, with a strategic review planned in 2024.

In 2023, the EU demonstrated its commitment to promoting peace and security through Common Security and Defence Policy (CSDP) missions and operations. The EU launched a mission in Armenia in the context of the deteriorating security situation at the border with Azerbaijan and another in Moldova to focus on strengthening resilience to hybrid threats. A Security and Defence Initiative, also including a peace and conflict prevention dimension, was launched at the end of 2023 in the Gulf of Guinea to address the risk of spillover of terrorism from the Sahel. Work started at the very end of 2023 to prepare a new EU maritime operation ASPIDES, in order to provide a swift answer to the growing threat against maritime security in the Red Sea. To increase the EU’s capacity to respond quickly to crises, intense work is ongoing to make Rapid Deployment Capacity fully operational by 2025. The first ever EU Live Exercise held in October 2023 in Spain has already contributed to improve military cooperation on the ground between Member States. European Peace Facility support to partner countries other than Ukraine continued to expand in 2023, including to new partners such as the countries of the Gulf of Guinea, Jordan and Lebanon, and the Democratic Republic of Congo.

The EU significantly advanced its ability to navigate strategic domains and respond to cyber and hybrid threats while defending maritime and space security. In 2023, the European External Action Service and the European Commission published an updated Maritime Security Strategy, the EU Policy on Cyber Defence, the new Action Plan on Military Mobility and the first Space Strategy for Security and Defence. Overall, the EU increased its capacity to detect, protect, deter and defend against cyberattacks and hybrid threats, including by progressing with the development of Hybrid Rapid Response Teams. Multilaterally, the EU led international efforts in the UN on international law in cyberspace, on responsible behaviour in space and to uphold and strengthen multilateral frameworks on disarmament and non-proliferation.

There has been an unprecedented boost in peace, security and defence partnerships with multiple actors worldwide, including the United Nations, NATO, and numerous bilateral partners, resulting in a growing number of security and defence dialogues, including thematic ones, and joint activities, including in mediation and conflict prevention, military mobility, cybersecurity, critical infrastructure protection, maritime security and space. The first Schuman Security and Defence Partnership Forum in March 2023 was a success. All these partnerships and joint activities affirmed the growing role of the EU as a peace enabler, security provider and defence actor.

1.7.    Peace, stability and conflict prevention

In a context of the continuing Russian war of aggression against Ukraine, increasing instability in the Sahel region, the war in Sudan that broke out in April, and the war in Gaza following the 7 October attack by Hamas, the EU responded to needs around the world through its ‘integrated approach’ to conflicts and crises.

This included timely crisis response interventions under the Rapid Response Pillar of the NDICI-Global Europe instrument, which addressed some of the main conflicts and post-crisis contexts in the world. This included Ukraine and its surrounding region, the countries of the Sahel, Syria, the Democratic Republic of Congo, the Western Balkans, and Haiti in addition to Ukraine and Israel/the Palestinian territories. Significant actions were launched in the area of conflict prevention, natural resources, stabilisation, confidence building, cyber security, disinformation as well as sexual violence and accountability. Actions continued to support and complement multilateral actions and processes, including Common Foreign and Security Policy (CFSP) actions across the world. NDICI-Global Europe emphasises conflict prevention by means of early warning, conflict-analysis capacity building, training, promoting good governance and respect for universal human rights.

Through its actions, the EU contributed to:

·conflict prevention;

·electoral violence prevention;

·gender equality;

·mediation, dialogue and peace building;

·stabilisation and human security;

·strengthening the rule of law;

·the fight against violent extremism, stigmatisation and disinformation; and

·security sector reforms.

The EU also continued to work with partner countries worldwide through long-term actions to build and enhance capacities to tackle global and trans-regional threats, ranging from terrorism and organised crime to threats to cyber and maritime security, and to tackle the security implications of climate change and environmental degradation. These actions in 2023 guided inter alia by the adoption of new EU strategies and action plans on counterterrorism, organised crime and trafficking in human beings contributed to bolstering the external dimension of EU internal security policy objectives and priorities.

The EU seeks to respond rapidly and flexibly to changing priorities and emerging threats. To this end, it seeks to broaden partnerships, promote European values and build new cross-regional alliances and project influence, thereby contributing to the security of the EU and its citizens from an internal and external perspective.

Engagement with international and regional organisations remained an EU priority and was reflected in its sustained commitment to the rules-based multilateral order.

The EU contributed to international peace and security also by deploying 14 civilian Common Security and Defence Policy (CSDP) Missions, which support security sector reforms, border management or build capacity of internal security forces in the Middle East, Africa, South-Eastern and Eastern Europe and the South Caucasus. The EU supported inclusive dialogue and mediation-driven conflict resolution, peace and security in the Sahel, West African Coastal countries, Central African countries, the Horn of Africa, the Middle East, Central Asia, the Gulf, Latin America, the Western Balkans, the South Caucasus, and Asia-Pacific, also through the work of 10 EU Special Representatives and two Special Envoys. Both the EU’s Action Plan on Women, Peace and Security (WPS) and the Action Plan on Youth, Peace and Security (YPS) have been considered through a deliberate engagement of female and young peacemakers and mediators.

Apart from actions addressing the proliferation of weapons of mass destruction and illicit trafficking in small arms and light weapons at country and regional levels, the EU also contributed to international security and peace by supporting non-proliferation and disarmament efforts at the global level through support to the effective implementation and, when relevant, universalisation of global non-proliferation and disarmament treaties, conventions, mechanisms and programmes( 35 ), as well as the activities of the relevant international organisations, such as the International Atomic Energy Agency, the Organisation for the Prohibition of Chemical Weapons, and the Preparatory Commission of the Comprehensive Nuclear-Test-Ban Treaty Organisation. The EU also supported a global reporting mechanism on illicit trading of conventional arms and their ammunition to reduce the risk of their diversion and illicit transfer (iTrace) in conflict-affected areas, including Afghanistan, Northeast Syria, Somalia, and the Sahel region.

1.8.    Human rights and democracy

In an increasingly complex global context marked by multifaceted global crises, continued democratic backsliding and undermining of human rights, the European Union remained committed to upholding and promoting human rights and democratic principles across the globe. The EU used the occasion of the 75th anniversary of the Universal Declaration of Human Rights to upgrade public diplomacy activities and enhance support to the Office of the High Commissioner for Human Rights.

EU electoral missions are flagship EU actions to support human rights and democracy. EU Election Observation Missions (EOMs) aim at building confidence in electoral processes, assessing their inclusiveness and transparency, and proposing recommendations for future improvements. The missions also contribute to the reduction of electoral violence, acceptance of credible results by all segments of society, and the peaceful transition of countries emerging from civil strife or war. EU conflict analysis, including electoral violence risk assessments, increasingly feed into EOM planning and deployment.

In addition, the EU deploys electoral follow-up missions to assess the progress made in electoral reform and the status of implementation of Missions recommendations. The EU deployed seven election observation missions in 2023 (Guatemala, Liberia, Maldives, Nigeria, Paraguay, Sierra Leone, and Zimbabwe), five election expert missions and three follow-up missions.

A Global Team Europe Initiative on Democracy (TED) launched in 2022 aims at strengthening coordination and complementarity of EU and EU Member States joint actions in promoting democratic governance in partner countries. The initiative comprises a network with 14 EU Member States at its core, supporting projects with research and expertise in three focal areas: accountability and rule of law; political and civic participation; and media and digital. Its coordination network with Member States and civil society was inaugurated in June 2023.

A Global Initiative on Impunity was established to enhance global capacity and coordination in monitoring, denouncing, and seeking accountability for international crimes and the most serious human rights violations. The opportunities and risks brought by the digital sphere to human rights and democracy were reflected in a new Digital Democracy Initiative (DDI): a collaboration with Denmark to promote and protect local inclusive democratic space in the digital age.

Thematic Framework Partnerships (FFPAs) for human rights and democracy were launched to create strategic, longer-term implementing relationships with high-capacity consortia of NGOs. The FFPAs aim to promote the work of human rights defenders and their freedom of assembly and association, with a focus on youth activists, fighting torture, advocating against the death penalty and promoting independent and pluralistic media and quality journalism.

In December, the European Union co-organised with a network of human rights NGOs (HRDN) the 25th EU-NGO Human Rights Forum, which gathered 300 participants around the theme of ‘Youth as actors of change for human rights’. The forum was an opportunity to discuss the work of young human rights defenders, the threats and challenges they face, and to identify ways to engage.

In 2023, the European Union provided support to 7 618 human rights defenders and family members through its emergency fund and the flagship programme ProtectDefenders.EU, managed by a consortium of 12 international NGOs.

Regarding the defence and promotion of human rights at the global level, throughout the year the EU Special Representative for Human Rights continued to enhance the effectiveness, presence and visibility of EU policy on human rights and to ensure the integration of human rights in all areas of EU external action. 

2.    Delivering on our commitments: Promoting EU values and interests and fostering sustainable development globally

2.1.    Global Gateway

In 2023, the European Commission and the EU Member States strengthened the implementation of the Global Gateway strategy with the endorsement of 225 Global Gateway flagship projects. Following the Global Gateway Board meeting at the end of 2022, the first meetings of the Global Gateway Business Advisory Group and the Civil Society and Local Authorities Dialogue Platform took place during the year. The first ever Global Gateway Forum took place in Brussels, from 25 to 26 October, in the presence of 20 Heads of States and Governments and 70 ministers. High-level representatives from the private sector and civil society organisations also attended. On that occasion, the EU signed over EUR 3 billion worth of commitments with a wide array of partners. The European Commission also stepped up its communication efforts, with a Global Gateway communication strategy agreed with Member States and a number of Team Europe Global Gateway joint missions were organised (Argentina, Brazil, Chile, Democratic Republic of Congo, Mexico, Namibia, Rwanda and Zambia).

The private sector is key to a successful implementation of Global Gateway. It brings sustainable investments and cutting-edge expertise to develop skills on the ground in partner countries. Public private dialogues are facilitated through events such as the business forum and over 20 business fora with partner countries took place in 2023. Work on enhancing coordination between Export Credit Agencies and Development Finance Institutions continued, notably with a focus on three pilot projects on: critical raw materials in Kazakhstan, E-buses in Costa Rica, and vaccine manufacturing in Ghana.

2023 also marked the launch of the EU-Latin America and the Caribbean Global Gateway Investment Agenda, in the margins of the EU-CELAC Summit. Global Gateway also framed the EU’s plan to provide strategic investments during the second EU-Indo Pacific Forum and the EU-Central Asia ministerial meeting. The European Investment Bank and the European Commission signed agreements for EUR 4 billion to support businesses in African, Caribbean and Pacific countries up to 2027, supporting public and private investments in key Global Gateway areas. The European Commission also signed 10 critical raw material partnerships (Argentina, Canada, Chile, Democratic Republic of Congo, Greenland, Kazakhstan, Namibia, Rwanda, Ukraine and Zambia), designed renewable hydrogen roadmaps with Kenya, Namibia and Kazakhstan, implemented renewable hydrogen strategies with Morocco and Egypt, and pledged to invest EUR 2 billion in Brazil’s renewable hydrogen production.

The European Commission showcased Global Gateway as a key contribution to enhancing critical infrastructure and achieving the Sustainable Development Goals (SDGs) globally in the margins of the fifth United Nations Conference on the Least Developed Countries, the UN General Assembly High Level Week, the COP28 Summit, the G20 Development Ministers meeting, and the G7 Hiroshima Summit. In support of political ambitions to mobilise EUR 300 billion in investments, as set out in the joint communication on Global Gateway, work continued on the negotiation of financial guarantees under the European Fund for Sustainable Development Plus (EFSD+). A financial monitoring methodology was also developed to monitor the scale of the investment mobilised as part of Global Gateway implementation.

2.2.    A ‘Team Europe’ approach

Sustaining momentum from previous years, the ‘Team Europe’ approach remained a critical element of the EU’s external action, especially through the roll-out of the Global Gateway strategy. Renewed political support from Member States was demonstrated through the Council Conclusions on the ‘Team Europe’ approach( 36 ), adopted in November 2023, underlining inter alia the contribution of the ‘Team Europe’ approach to the implementation of the 2030 Agenda for Sustainable Development and the Addis Ababa Action Agenda and the Paris Agreement, as well as the role of the ‘Team Europe’ approach in increasing the visibility of the EU and in demonstrating the EU’s global role, responsibility and solidarity. In 2023, the implementation of Team Europe Initiatives (TEIs) continued to progress with 168 TEIs in place in more than 80 partner countries.

The ‘Team Europe’ approach was also further promoted through the Practitioners’ Network (PN) of European Development Cooperation organisations. Cooperation between the PN and European Development Finance Institutions (EDFIs) and the Joint European Financiers for International Cooperation (JEFIC) networks was encouraged through the organisation of an Inclusiveness Event in March 2023, which focused on how technical and financial cooperation can contribute to building effective partnerships for strengthened development impact and the bridging of the SDG financing gap in partner countries. In terms of guidance, the Monitoring and Evaluation framework for TEIs (MORE) was introduced during the year. Building on previous support, the technical assistance facility ‘Support to European Development Policy’ was continued to assist EU Delegations, Headquarters, and Member States in the resource-intensive coordination work generated when taking forward a ‘Team Europe’ approach. In 2023, the facility provided support to EU Delegations in 11 countries in Sub-Saharan Africa, Asia, South America, the Neighbourhoods, as well as to several Commission services.

Alongside the implementation of TEIs, joint programming processes continued with 14 joint programming documents in place. This represents an overall decrease compared to previous years in a period when new ways of working together in a ‘Team Europe’ approach (e.g., TEIs) were introduced.

Furthermore, the EU continued to actively reinforce its partnerships with the UN and the International Financial Institutions (IFIs), in particular with the World Bank Group (WBG) and the International Monetary Fund (IMF) to ensure a stronger voice in a ‘Team Europe’ approach around EU priorities. The ongoing global discussions on the reform of the Multilateral Development Banks, and the World Bank Evolution Roadmap were the focus of two formal and two informal FAC-Development in 2023 and provided significant opportunities for EU engagement with the institutions. The still relatively new practice of developing common messages with Member States was continued ahead of the Spring and Annual Meetings. In June 2023, the first ever Commission-IMF High Level Dialogue on Development with the participation of European Commissioner Urpilainen and IMF Managing Director Georgieva took place in Brussels, with commitment on both sides to deepen the partnership in specific development themes.

To enhance knowledge sharing in a ‘Team Europe’ approach, the European Commission continued to enhance tools such as the Team Europe Initiatives and Joint Programming Tracker( 37 ).

2.3.    Implementing the 2030 Agenda and other international and European commitments and policies

Amidst renewed attacks against multilateralism, the EU redoubled its efforts to advance the Sustainable Development Goals. Evidence continued to show that overall progress towards the 2030 Agenda has been severely disrupted in the last three years, very much exacerbated by the impacts of the COVID-19 pandemic, Russia’s war of aggression against Ukraine, climate-related disasters, biodiversity loss, and growing inequalities. Against this background, the Sustainable Development Goals (SDGs) Summit in September 2023 was a major opportunity for world leaders to recommit towards the 2030 Agenda and to accelerate actions on the SDGs.

At EU level, the SDGs continue to be at the heart of policymaking across all sectors, namely on major deliverables such as the European Green Deal, the European Pillar of Social Rights Action Plan, and the European Semester.

At the UN High-level Political Forum in 2023, the EU presented the first ever EU Voluntary Review on SDGs implementation( 38 ), which was conducted in line with the UN voluntary reporting guidelines, including a broad consultation, and entailed a comprehensive review of EU’s internal and external progress towards the SDGs. It details how the EU is adding value to the achievement of the goals, while also addressing how policy coherence for development helps EU’s strategy to achieve the SDGs.

In 2023, and adding to previous work experience, the EU and its Member States further consolidated their commitment to contribute to the achievement of the SDGs, namely by putting the SDGs at the centre of the Global Gateway strategy. At the opening session of the SDGs Summit, President Von der Leyen reaffirmed that Global Gateway is one of our main ways to mobilise resources for achieving the SDGs.

Building further on the outcome of the SDGs Summit, the Summit of the Future in September 2024, aiming at reinvigorating effective multilateralism, will provide a key moment to accelerate, amongst other things, the envisioned governance reforms and the implementation of the 2030 Agenda and SDGs. To prepare for it, in December 2023, the Council adopted a joint written input from the EU and its Member States to the zero-draft UN Pact for the Future.

2.4.    Means of implementation

In the wake of multiple crises of the recent years, the EU in cooperation with ‘Team Europe’ members is helping its partner countries mobilise a combination of both financial and non-financial resources to implement the 2030 Agenda.

The EU has continued its support to partner countries to mobilise diverse financing for SDG implementation. In 2023, the EU further helped countries implement Integrated National Financing Frameworks (INFFs), with more than 90 countries developing INFFs. Notably, this process has contributed to bond issuances in Uzbekistan, Indonesia and Cabo Verde.

To mobilise public and private sustainable investment, the European Fund for Sustainable Development Plus (EFSD+)( 39 ) provides guarantees and subsidies for loans as well as capital investments, with many proposed investment programmes underway such as Finnfund's Africa Connected and the European Investment Bank (EIB)/Bill and Melinda Gates Foundation’s Accelerating Human Development programmes. In the Neighbourhood and Enlargement regions, EFSD+ guarantees supported EUR 1.3 billion of EIB lending to public sector investment, including flagship projects such as Moldova Solidarity Lanes and the Tunisia-Italy power interconnection. In addition, EUR 47 million of guarantee cover was utilised in 2023 for 15 operations in Armenia, Azerbaijan, Georgia, Morocco, Palestine and Ukraine involving the private sector.

Alongside the EFSD+ and related technical assistance, EU budget support remains a central modality for the Commission and an enabler for Global Gateway implementation. Budget support promotes prudent macroeconomic management (including debt sustainability), sound public policies, results-monitoring and accountability, as much as critical reforms for the investment climate. In 2023, budget support was used to promote regulatory reforms in the energy sector in Viet Nam and Benin, to encourage renewable sources, notably allowing for EU development finance institution (DFIs) to fund given investments directly with EU blending support. In the context of Global Gateway Flagship projects, such synergies are also sought, for instance, in Kyrgyzstan for digitalisation, Guyana for sustainable forestry, Bolivia and Fiji for climate change, and Rwanda and Cambodia for education.

Moreover, the EU continued its work on scaling up sustainable finance in partner countries. In 2023, the EU moved closer to launching the Global Green Bond Initiative, consisting of a fund supported by an EFSD+ guarantee that will pool capital from European DFIs and private investors to invest in green bonds. The EU also made progress towards operationalising the Sustainable Finance Advisory Hub, expected to provide technical support for developing sustainable finance frameworks and sustainable financial instruments in partner countries, including the expansion of green bond markets. The High-Level Expert Group on scaling-up sustainable finance in low- and middle-income countries, mandated by the Commission as an independent advisory body, held eight meetings in 2023 and published its Preliminary Findings & Recommendations report in June( 40 ), which was presented at the Paris Summit on a New Global Financial Pact. The recommendations of the High-Level Expert Group will inform the Commission for its future strategy on scaling up sustainable finance in EU’s partner countries, while they don’t commit the Commission nor do they preclude any policy outcomes.

The EU took measures to promote local private sector development in partner countries, in particular by providing support to young businesses in Africa( 41 ) and to the renewable hydrogen sector in Chile( 42 ). Moreover, the EU provides regulatory guidance assistance, for example on due diligence requirements through a dedicated platform( 43 ). The EU also promotes public-private dialogue processes, whether general in nature, for instance through the Global Gateway Business Advisory Group, or more targeted, as is the case for the European Business Group Tanzania. The EU has also stepped up its assistance to investment climate reforms( 44 ).

2.5.    Mobilisation of the NDICI-Global Europe cushion

The European Commission made full use of Global Europe’s 2023 emerging challenges and priorities cushion budget of EUR 1 395 million.

As in 2022, in 2023 the response to the consequences of Russia’s war of aggression against Ukraine has been one of the main drivers of mobilisations, with a total amount of EUR 405 million mobilised to support the Ukrainian Government.

EUR 419 million were mobilised to reinforce the global challenges, human rights and democracy, and civil society organisations thematic programmes. With this, the entire top-ups embedded in recital 70 of the NDICI-Global Europe Regulation have been transferred.

To continue supporting partner countries facing the consequences of the COVID-19 pandemic, EUR 134 million were mobilised to support the initiative on vaccine production in Africa, and EUR 225 million to support partner countries facing the devastating socio-economic consequences of the pandemic on education, through the Global Partnership for Education.

The cushion has also supported Syrians refugees and host communities, both inside the country and in the region with EUR 212 million, as part of a wider financial package of support.

2.6.    Policy Coherence for Development

In 2023, the Commission continued efforts to mainstream policy coherence for development (PCD), part of the broader Policy Coherence for Sustainable Development (PCSD) approach and its processes with the aim of ensuring coherence between internal and external EU policies and the mainstreaming of the external dimension across major European Commission initiatives.

PCD remains a fundamental element to progress towards the EU’s development cooperation objectives, i.e. reduction and – in the long term – eradication of poverty, and key to implement the 2030 Agenda and its SDGs. The Commission strives for the full integration of PCD across all phases of the preparation cycle of Commission legislative and non-legislative initiatives to assess the potential impacts of internal EU policies and initiatives on third countries.

Furthermore, the European Commission integrated PCD and PCD reporting in its overall work related to SDGs implementation, and the first EU Voluntary Review on the Implementation of the 2030 Agenda( 45 ) (EUVR) in 2023 addressed how both EU internal and external actions contribute to the SDGs. In line with this, the EUVR was presented at the United Nations High-level Political Forum (HLPF) meeting by both European Commissioners Jutta Urpilainen and Paolo Gentiloni.

The EUVR shows how the European Commission’s priorities, such as the European Green Deal, help drive, at home and globally, the transformations necessary to deliver on the SDGs, while leaving no one behind. These priorities, are interconnected with the five Ps – People, Planet, Prosperity, Peace, Partnership – of the preamble of the 2030 Agenda. Moreover, the EUVR includes sections on internal/ external coherence and policy coherence for development at the beginning of the external section of each SDG chapter.

Its preparation included engaging a broad range of stakeholders, including EU institutions and advisory bodies, Member States, the United Nations, civil-society organisations (CSOs), academia, businesses and the wider EU public. The EUVR includes a summary of collective views from civil society on the achievements and challenges in SDG implementation at EU level.

2.7.    Development effectiveness

Development effectiveness (Busan principles) are actively promoted in EU’s development cooperation to achieve the best sustainable impact for those most in need. The ‘Team Europe’ approach is a key contribution to effectiveness by pulling together European resources (financial and/or human), where relevant, and by providing a common space and framework for collaboration – in line with partner country priorities – and thus increasing the positive impact of the cooperation.

As an active member and supporter of the Global Partnership for Effective Development Cooperation (GPEDC), the European Commission took an active part in developing the new GPEDC Monitoring Framework (2020-2022) which started its rollout in 2023. This new monitoring will provide a better basis for analyses on development effectiveness and the more countries taking part in it, the better the basis for these analyses. As of end of December 2023, 54 countries had signed up for this voluntary exercise. The European Commission provided financial contribution to the GPEDC notably to support partner countries in undertaking the GPEDC monitoring exercises.

2.8.    European Financial Architecture for Development (EFAD)

The roadmap for an improved European Financial Architecture for Development (EFAD) is structured around four objectives: affirming a strong EU policy steer, promoting enhanced coordination, building a more inclusive financial architecture, and ensuring increased visibility and influence of the EU and its Member States in a ‘Team Europe’ approach. In 2023, the European Commission implemented numerous activities to strengthen EFAD:

Policy steer

Guarantee policy discounts continued to be provided to incentivise investments supported by EFSD+ targeting EU geographic and thematic priorities. Teaming up among financial institutions continued to be promoted. In particular, the endorsement of several guarantees proposed by the Association of Bilateral European Development Finance Institutions (EDFI) allowed non pillar-assessed smaller development finance institutions to obtain access to EFSD+ guarantee support.

The EFSD+ Results Measurement Framework has been rolled out through regular dialogue with Member States and finance institutions. Finance institutions have been supported to use this system to report on results from EFSD+ interventions in a harmonised way. This will allow the European Commission to gather and aggregate data.

A Global Gateway financial tracking mechanism to track progress towards the target of EUR 300 billion of investments was set up.

In 2023, the Sustainable Finance Advisory Hub was approved as a Team Europe Initiative, to coordinate and scale up high quality technical assistance on sustainable finance.

The use of institution-building tools such as TAIEX (Technical Assistance and Information Exchange) and twinning to provide capacity building through public sector expertise was further encouraged and increased as compared to 2022. Both tools continued to extend their thematic and geographic scope. TAIEX activities implemented beyond Enlargement and Neighbourhood regions increased by 64 % compared to 2022.

In pursuing its objective to increase mobilisation of private investments, the European Commission has set up the Global Gateway Business Advisory Group (BAG). The BAG gathers CEOs and senior executives of European companies, small and medium-sized enterprises and business associations and provides a forum to engage with the private sector on the strategic orientations of Global Gateway. The first plenary meeting took place on 27 September 2023.

More than 20 EU Business Fora have been organised at regional and country level in Africa, Asia and Latin America. European and partner countries’ private and public sectors actively took part in these events, fostering dialogue and contributing to an improved business climate.

For Enlargement and Neighbourhood countries, a private sector engagement task force has been established to intensify dialogue with companies and private financial institutions on possible co-investment in projects aligned with EU priorities. A ‘Deep Dive’ event with key International Financial Institutions was organised in September 2023 aiming at strengthening links between EU financial support and the priority reforms needed to boost partner countries' growth potential. In addition, preparatory work was done to launch the Ukraine Investment Framework in early 2024.

In April 2023, a Joint Staff Working Document with the main outcomes of the mapping of the EU external financial tools( 46 ) was adopted. Furthermore, in May 2023 the Commission published the Feasibility Study on an EU Strategy on Export Credits.

With the aim of enhancing cooperation between Export Credit Agencies (ECAs) and development finance institution (DFIs), the European Commission identified potential pilot initiatives in partner countries, in the sectors of critical raw materials, green mobility and health, and organised meetings to develop work on these initiatives involving the European Investment Bank (EIB), other EU DFIs and ECAs.

Coordination

EU coordination on matters related to international financial institutions was further enhanced in 2023. The Multilateral Development Bank Reform was addressed in Council meetings, both the Foreign Affairs Council-Development, and the Economic and the Financial Affairs Council, as well as in the G20 forum. The practice of developing a set of ‘Team Europe’ messages on development, circulated by the Council Presidency for the Spring and Annual Meetings, was continued.

The European Commission nominates one member, respectively, of the Board of Directors of the EIB and the EBRD and works towards aligned EU positions in the Boards. The dialogue with both institutions addressed a number of key policy areas where EU interest is at stake (procurement, security, trade policy, green and digital transitions).

The European Commission intensified coordination with the EU executive directors at the World Bank and engagement with World Bank senior management throughout the year. The first ever European Commission-International Monetary Fund (IMF) High-level Dialogue on Development with the participation of Commissioner Urpilainen and IMF Managing Director Georgieva took place in Brussels in June 2023, with commitment on both sides to deepen the EU-IMF partnership in specific themes and countries.

Following the signature of the financial framework partnership agreement with the Asian Development Bank in January 2023, the European Commission intensified efforts to promote strategic cooperation and co-financing through workshops, common events, pipeline discussions and regular meetings between all relevant services including EU Delegations.

Inclusiveness

The role of EU Delegations as coordinators/focal points for European Financial Architecture for Development (EFAD) actors at local level has been further strengthened. Advice and support have been provided to accompany EU Delegations in their dialogue with Member States, DFIs and private sector.

Dialogue among implementing agencies, DFIs and public development banks – members respectively of the Practitioners’ Network (PN), EDFI and Joint European Financiers for International Cooperation (JEFIC) – continued with a focus on how to effectively operationalise partnerships. The theme was at the core of the joint PN-European Commission Inclusiveness Event in March 2023.

The European Commission continued providing methodological advice to European DFIs undergoing complementary pillar assessments and dedicated information meetings for new applicants.

Visibility

The Global Gateway Communication Strategy was finalised and shared with EU Delegations in April 2023. Several Global Gateway external outreach events were also organised. During the Global Gateway Forum in October, several operations were announced in close cooperation with Team Europe partners via press releases, social media posts and mini campaigns.

Five joint Global Gateway/Team Europe missions took place in 2023 to Namibia, Niger, Colombia, the Democratic Republic of the Congo and Rwanda. The Joint Missions to Niger and Colombia saw the participation of EIB regional and local representatives. Investment missions involving International Financial Institutions, government authorities and the local private sector were organised in the Western Balkans countries, Lebanon and Uzbekistan.

3.    Thematic Overview 

Working together towards the SDGs and results achieved with EU support

The priorities of the current Commission have been translated into a portfolio of development actions: human development; green deal; sustainable growth and jobs; science, technology, innovation and digitalisation; migration; and governance, peace and security. They provide the basic structure for the sections within this chapter on the thematic overview of international partnerships. At the same time, implementing these EU priorities is key to help our partners to implement the Sustainable Development Goals (SDGs). In this report, main achievements of the EU’s actions are presented within the above-mentioned EU global priorities, alongside illustrative trends in relation to respective associated SDGs and the respective available results, based on the existing EU results framework. While for the purpose of this chapter, and for readability purposes, each SDG is mentioned only once under an EU priority to which it is particularly related, the cross-cutting nature of the SDGs and the strong interlinkages among them imply that the content reported under each SDG will often also be relevant to other EU priorities as well.

3.1.    Human Development

3.1.1. SDG #1 Reduced Poverty

Poverty eradication in EU cooperation

Poverty eradication remains central to the EU's development cooperation priorities, as mandated by Article 208 of the Treaty on the Functioning of the European Union (TFEU), stating that the Union’s development cooperation policy ‘shall have as its primary objective the reduction and, in the long term, the eradication of poverty’. It is also the primary objective of the European Consensus on Development, and a long-term goal for Global Gateway investments.

SDG trends

Before the COVID-19 pandemic, extreme poverty (EUR 1.97 per day) had been trending downwards, standing at 9 % of the global population in 2019 ( latest World Bank data ). The pandemic and the subsequent crises resulted in a reversal of that trend. After a consecutive two-year decline in the Human Development Index (HDI) in 2020 and 2021, which erased the progress of the previous five years, the global HDI value has rebounded. However, the HDI value continues to evolve below the pre-2019 trend( 47 ). If this continues, the losses will be permanent.

The increasing number of fragile and extremely fragile countries further exacerbates this trend. Fragile contexts account for 24 % of the world’s population with 73 % of those living in extreme poverty( 48 ).

Meanwhile, 53 % of the global population lacks coverage under any social protection scheme. Related to this is the inability of households to meet basic needs, with some 485 million people experiencing these deprivations.

Specific actions

Poverty is multidimensional (SDG 1), affecting different aspects of well-being, including health, education, living standards, rights and empowerment, work quality, and security, and the environment (multidimensional poverty index). Therefore, the actions aimed at reducing poverty are addressed within the thematic chapters on human development.

In this regard, the Commission( 49 ) has largely exceeded its commitment to allocating at least 20 % of its Official Development Assistance (ODA) to social inclusion and human development. This spending target is aimed at reducing poverty and inequalities and reinforcing social cohesion and access to basic social services. It encompasses efforts to end hunger and all forms of malnutrition, ensure access to water and sanitation, as well as to promote universal social protection and health coverage, universal access to quality education and training, and decent work for all within a healthy environment.

In 2023, under the NDICI-Global Europe, all decided actions contributed to the social inclusion and human development spending target for a total of EUR 4.3 billion (corresponding to 35.5 % out of the total committed amount). Cumulative figures 2021-2023 resulted in contributions to the target of EUR 12.3 billion.

EU budget support significantly aids policy development aimed at benefiting the poor. Between 2014 and 2022, 75 % of the EU budget support portfolio (around EUR 11.5 billion globally) contributed to SDG 1. As an example, in Cabo Verde, it triggered the development of the National Extreme Poverty Eradication Strategy, which aims at eradicating extreme poverty by 2026, and the creation of an innovative financing instrument for domestic revenue generation, the Fundo Mais, that is primarily funded through tourist tax/overnight stays and reverts into cash transfers for vulnerable families.

With regards to SDG target 1.3 on social protection, the EU has continued supporting long-term national social protection system building. At the country level, some 50 country multi-annual indicative programmes for 2021-2027 have integrated social protection in their priority areas, focusing on policy development, expansion of coverage, digital management information systems, shock-responsive/adaptive social protection, and social protection in the informal economy or across the humanitarian-development nexus.

Two regional Team Europe Initiatives (TEI) also focus on poverty reduction, ‘Social Protection in Sub-Saharan Africa’ and ‘Inclusive and Equal Societies’ in Latin America and the Caribbean, with a focus on promoting social cohesion. Finally, the EU has completed a global thematic programme on ‘Improving Synergies between Social Protection and Public Finance Management’, being innovative in explicitly linking both and paving the way for the Global Accelerator for Jobs and Social Protection.

The EU’s Generalised Scheme of Preferences (GSP) supports poverty reduction, economic stability and sustainable development through unilateral trade preferences to 65 developing countries. In November 2023, the EU prolonged the current legal framework for GSP until 2027. The latest EU GSP report on the effects and implementation of GSP was also published in November 2023( 50 ). It presents an overview of the significant impact the generous access to the EU market has to trigger the most necessary economic and social reforms in the beneficiaries countries. The report kicked off the current monitoring cycle, in particular for the eight beneficiaries of the Special Incentive Arrangement for Sustainable Development and Good Governance (GSP+)( 51 ) and their commitments to the effective implementation of 27 international conventions on human rights, labour rights, climate and environment, and good governance.

3.1.2. SDG #2 Zero Hunger

The Global Report on Food Crises (GRFC) for 2023 – co-funded by the European Union – indicates that over a quarter of a billion people in 59 countries are facing acute hunger, with Burkina Faso, Mali, Palestine, South Sudan and the Sudan as some form of hunger hotspots of the highest concern level. Around 600 million people are projected to be facing some form of hunger in 2030, despite the SDG 2 commitment on ‘zero hunger’. Similarly, global nutrition targets are unlikely to be achieved by 2025. As a response, the EU Institutions committed EUR 8.3 billion in grants to the food security priority in the period 2021 to 2024. This includes EUR 4.9 billion for short-term humanitarian and macroeconomic assistance and EUR 3.4 billion for longer-term support on sustainable food systems( 52 ).

The EU mobilised over EUR 670 million in humanitarian food and nutrition assistance in 2023. This is a significant decrease compared to the exceptional level of funding in 2022, due to budgetary constraints, but still significantly higher than the funding allocated in previous years. These funds were mostly channelled through multilateral institutions, and primarily directed to the countries most affected by food insecurity, such as Afghanistan, Sudan, Syria, Yemen, Somalia, the Democratic Republic of the Congo, South Sudan or Ukraine. In the Occupied Palestinian Territories, humanitarian food assistance increased 15-fold, mostly after the outbreak of the recent conflict. Sudan and Afghanistan also saw significant increases. In 2023, the EU continued to operationalise the four-pronged response in a ‘Team Europe’    approach to global food insecurity, including on the sustainable production pillar. Several events, including the EU- African Union Agricultural Ministers Meeting in June 2023, the United Nations Food Systems Stock Take in July 2023 and the COP28 in December 2023, allowed the EU to confirm its leadership in, and engagement to, global food security – including in the context of G7 and G20 work agendas.

To support the sustainable transition of agrifood systems, in 2023 two new initiatives were signed with the International Fund for Agricultural Development (IFAD) in support of agroecological practices and soil health restoration in ACP countries for more than EUR 70 million. These actions will enhance access to agroecological bio-solutions, including seeds, bio-inputs (organic fertilisers and bio-pesticides) and mechanical equipment adapted to small-scale agroecology farming practices as well as soil fertility and access to finance for rural small-scale investors.

In 2023, the EU supported 106 humanitarian nutrition projects implemented by 35 partners in 27 countries targeting about 30 million beneficiaries. The European Commission was involved in the preparation and the issuing of the recent WHO guideline on the prevention and management of wasting and nutritional oedema (acute malnutrition) in infants and children under five years( 53 ) and is committed to support its implementation in all new actions. Keeping in mind the key role the communities will have to play, the need for strengthening local skills, as well as the commitments made under the Grand Bargain( 54 ), the European Commission’s funded actions proactively requested humanitarian actors to include local capacity building and the creation of an enabling environment for nutrition within the health structures in their interventions.

The continuum of care is an essential element for a sustainable response in emergencies or in humanitarian settings and the interdependency between nutrition, health and food security is carefully observed. The Programmatic Partnership approach was used for several important nutrition-related actions, to ensure the predictability of funding (essential for this type of interventions) and promote a more strategic response. Reducing the dependency of people living in humanitarian, fragile or violence affected settings from RUTF( 55 ) and RUSF( 56 ) products, by gradually replacing them with locally produced crops remains a challenge and the collaboration across European Commission departments and other development actors remains critical in this respect.

In 2023, the Commission’s Disaster Preparedness Budget line funded programmatic actions in all regions to fight food insecurity. For example, in Central America, the Commission with its partners worked on increasing safety, mitigating risk, and meeting humanitarian needs for the vulnerable populations affected by other situations of violence, forced displacement, and food insecurity in the north of Central America. And in Kenya, the Red Cross/ Red Crescent movement, through the Finnish Red Cross, has worked on improving disaster preparedness and response through strengthening anticipatory action and shock-responsive social protection mechanisms.

In addition, the EU remains fully engaged in the Sustainable Cocoa Initiative to ensure a decent living income for cocoa farmers while tackling social and environmental challenges. Multistakeholder dialogues have allowed for exchanges between all stakeholders including representatives of the chocolate industry, cocoa traders, farmers organisations, and civil society. During 2023, the initiative led to the set-up and strengthening of traceability systems for cocoa and monitoring systems on deforestation and child labour in Côte d’Ivoire, Ghana and Cameroon. In addition to the technical Focus Group on Price and Markets (facilitated by the Côte d’Ivoire-Ghana initiative at regional level), the European Commission organised three meetings of the Focus Group on Traceability and Standards for sustainable cocoa. Finally, the EU, through the work of the Joint Research Centre, is also supporting the transition towards a sustainable cocoa supply chain, with contribution to the production and validation of land use maps, and with studies on living income gap, traceability costs and agroforestry.

At the Climate COP28, the EU together with Germany, France and the Netherlands, launched a global Team Europe Initiative (TEI) on Deforestation-free Value Chains. The initiative will help address deforestation on a global scale and support the commitments outlined in the Glasgow Leader’s Declaration on Forests and Land Use from COP26 to halt and reverse forest loss and land degradation by 2030. Aligned with the EU’s Global Gateway strategy, the global TEI is designed to halt deforestation and support partner countries in successfully transitioning to sustainable, deforestation-free, and legal value chains. The EU and its Member States announced an initial package of EUR 70 million in new funding for the implementation of this TEI, complementing a broad portfolio of ongoing programmes from the EU and its Member States on forests, agricultural development and halting deforestation.

The EU also strengthened its partnership with the Scaling Up Nutrition (SUN) movement by enhancing cooperation with the regional SUN hubs in Africa, Latin America and Asia. The EU, together with Member States, provided demand-driven technical assistance on nutrition to a number of countries facing increasing levels of malnutrition and facilitated peer-to-peer learning and exchanges to prepare for the Nutrition for Growth Summit in France (early 2025).

3.1.3. SDG #3 Good Health and Well-being

The COVID-19 pandemic made health care and health systems strengthening a major priority of the European Commission’s international cooperation and notably of the partnership with the African Union (AU). 2023 was marked by the further rollout of the EU Global Health Strategy( 57 ) adopted in 2022.

In 2023, the European Commission’s global actions continued assisting low-and-middle income countries to access and use quality preventive and response measures to infectious diseases (through vaccines, treatment, and diagnostics), channelling funding through and working together with the global health initiatives such as the ACT-A, its vaccines pillar COVAX, the Global Alliance for Vaccines and Immunisation (GAVI) and the Global Fund. Commitments to support Universal Health Coverage (UHC) by funding the WHO led UHC-Partnership, women's health through United Nations Population Fund (UNFPA) supplies, the fight against infectious disease (HIV, Tuberculosis, Malaria) through the Global Fund, and childhood vaccinations through GAVI have continued over the year. The new global fund hosted by the World Bank to ensure permanent and agile funding for pandemic prevention, preparedness and response beyond the current pandemic, the Pandemic Fund( 58 ), selected programmes for funding through its first call for proposals. The European Commission is one of the main funding donors and contributors to the fund’s governance and operations design.

The European Commission also aims to provide high-quality humanitarian health assistance to the most vulnerable in fragile contexts by building as much as possible on pre-existing facilities, programmes and systems in a cross-sectoral manner. This includes primary and emergency medical assistance, outbreak preparedness and response, sexual and reproductive health care, mental health and psychosocial support, amongst others. In 2023, the Commission channelled EUR 334 million to its partner organisations to support health interventions in emergencies, humanitarian crises and protracted and forgotten crises.

Addressing public health issues and strengthening health systems and governance, including social protection and assistance, remained a key EU objective in the Southern Neighbourhood with supports provided in Libya (Towards a resilient health system), Morocco (Programme d’Appui Budgetaire à la Protection Sociale au Maroc - KARAMA-II) and Tunisia (Promotion du régime de l'autoentrepreneur).

At the regional level, under the ‘Team Europe’ approach, the Commission advanced five health initiatives. The most advanced is the Team Europe Initiative (TEI) on Manufacturing and Access to Vaccines, medicines & health technologies in Africa (MAV+). The objective of MAV+ is to increase equitable access to safe, effective, high quality and affordable essential vaccines, medicines and health technologies for all Africans. It follows a 360-degree approach around three dimensions: the supply side, the demand side, and the creation of an enabling environment. Several projects are advancing with EU support in Egypt, Nigeria, Senegal, Rwanda, South Africa and Ghana and primarily target vital continental vaccine production. The health TEI for Africa on sexual and reproductive health and rights (SRHR) entered the implementation phase, while the TEIs on health security using a One Health approach( 59 ), public health institutes, and digital health prepared to launch collaborative actions with African regional counterparts early in 2024.

3.1.4. SDG #4 Quality Education

Education continued to be a key area in EU external relations as an enabler of all Sustainable Development Goals, an equaliser of inequalities and driver of economic growth and prosperity for all.

The EU Global Gateway strategy recognises that economic growth is dependent on an educated, skilled workforce and healthy societies. EU investments focused on teachers and learning, more equitable and inclusive education systems, and on 21st century skills that will enable partner countries to make the most of the digital and green transitions.

Through its membership of the SDG 4 High-level Steering Committee, the EU contributed to global education governance efforts, improving coordination around the education priority areas identified by the UN Transforming Education Summit in 2022 in support of progress on SDG 4 goals.

The Regional Teachers Training Initiative for Sub-Saharan Africa was launched in 2023 as one of the main education flagships. In addition, through investing in the Global Partnership for Education (GPE) and Education Cannot Wait (ECW), the EU and EU Member States – together in a ‘Team Europe’ approach - reinforced the extensive EU education and training support in around 80 partner countries.

The EU’s work on higher education amplified Global Gateway infrastructure investments, opening up learning opportunities through exchange programmes, and strengthening higher education institutions in partner countries. The regional flagship on ‘Youth Mobility for Africa’ showcases the wide-ranging EU support, bringing together Erasmus+, the Intra-Africa Academic Mobility Scheme, Harmonisation of African Higher Education Quality Assurance and Accreditation (HAQAA), African Continental Qualifications Framework, Young African Leaders Programme, and the Africa-Europe Youth Academy.

This approach helps to strengthen and harmonise multiple efforts, programmes and initiatives addressing international learning mobility and capacity building in higher education and skills development, quality assurance, qualification frameworks and youth leadership in Africa. The initiative improves coordination between the EU and its Member States, the African Union and its Member States, and stakeholders from both continents, by providing a common platform for policy dialogue and exchanges.

Vocational education and training (VET) is an enabling factor for inclusive and decent employment. As part of the EU’s 360-degree approach it seeks to ensure the sustainability of Global Gateway investments. Employment is the leading perspective for all VET interventions, particularly in Africa. In 2023, the VET Toolbox implemented pilot projects linking skills development to investments in eleven Sub-Saharan African countries. The upcoming Team Europe Initiative on Opportunity-driven Skills and VET in Africa, which will be launched in April 2024, promotes a paradigm shift where the VET offer is reverse engineered from real job opportunities. The initiative will identify decent employment opportunities and required skills profiles created by investments, value chain developments and other market dynamics under the Global Gateway and orient VET interventions towards these employment opportunities. Under the regional Team Europe Initiative on ‘Jobs through trade and investment in the Southern Neighbourhood’, the project ‘Youth NEETS’ has been developed to improve the situation of young NEET (Not in Employment, Education or Training) populations by increasing employment and training opportunities.

In 2023, under the NDICI-Global Europe, all decided actions contributed to the education spending target for a total of EUR 1.2 billion (corresponding to 12.9 % out of the total committed amount). Cumulative figures 2021-2023 resulted in contributions to the target of EUR 3.1 billion.

In conflicts, crises and humanitarian emergencies, the EU worked towards ensuring the right to education for every single child. The EU allocated 10 % of its initial humanitarian aid budget to education in emergency contexts, and 13 % of its budget for the non-Neighbourhood, anchoring the EU as a global education champion.

The humanitarian support to education in emergencies and protracted crises reached EUR 162 million in 2023, benefiting nearly 1.8 million crisis-affected girls and boys and supporting their access to safe and quality learning. In March 2023, on the occasion of a High-level conference on Education in Emergencies, the EU issued jointly with UNICEF a call for strengthened collective engagement and for an increase in public funding to help children caught up in fragile humanitarian settings to stay in, or return to, learning.

In December 2023, the EU presented a comprehensive education pledge at the Global Refugee Forum, highlighting the investment in refugee education, support to gender equality, engagement with local stakeholders and refugee communities, support to teachers and to the strengthening of resilience and adaptive capacity of education systems.

3.1.5. SDG #5 Gender Equality

EU external actions contributed to SDG 5 through political and policy dialogue, improved gender mainstreaming across all implementing modalities, including EFSD+, through Team Europe Initiatives, and new, ambitious targeted actions.

In line with the Gender Action Plan III (GAP III), adopted in 2021, all EU external actions must be gender mainstreamed. The number of external actions with gender equality as a principal or significant objective has increased significantly, from 64.71 % in 2019 to 82.7 % in 2023, corresponding to EUR 13.262 million in commitments. Since the launch of the GAP III, 3.8 % of all gender-responsive/targeted actions have gender equality as a principal objective.

In a ‘Team Europe’ approach, gender equality efforts are also integrated into the EUR 300 billion Global Gateway strategy – in education, health, digital, energy, and climate change – contributing to more inclusive and fair green and digital transitions. Recently launched targeted actions promote, amongst others, decent work and the fight against gender-based violence in Bangladesh, gender-responsive social protection in Malawi, gender equality, peace and social cohesion in conflict-affected regions in Cameroun, women-led green transition in Viet Nam, and inclusion and social cohesion in Latin America and the Caribbean. Two new global actions support the Spotlight Initiative and regional and global networks of women’s organisations to fight gender-based violence.

In line with the approach and priorities established by the GAP III, new actions seek to promote a gender transformative change, by challenging gender stereotypes and eradicating harmful social norms, namely through regional actions in the Eastern Partnership and Southern Neighbourhood.

Efforts have also continued to include a gender dimension in EU-funded humanitarian aid, for instance when supporting protection and access to basic services for Afghan refugees in Iran. The EU continued to carry out gender-sensitive needs assessments and analyses in its humanitarian actions, in order to gain greater insight into the roles, access to resources, existing inequalities and supportive local structures (including women’s organisations), specific needs, vulnerabilities, risks (such as sexual and gender-based violence), coping strategies and capacities of women, girls, boys and men. In addition, the EU kept supporting the prevention, mitigation and response to sexual and gender-based violence, including conflict-related sexual violence, through funding and advocacy activities. The EU allocated approximately EUR 38.5 million in 2023 from its humanitarian aid budget for targeted actions to prevent, mitigate and respond to gender-based violence in emergencies. In addition, EUR 31.5 million were allocated to accommodate the sexual and reproductive health and rights needs of women and girls in humanitarian situations.

In the framework of the European Fund for Sustainable Development Plus (EFSD+), the EU is working closely with International and Development Financing Institutions to promote women’s access to finance and entrepreneurship, among others. 72 % of all reported EFSD+ operations in 2023 were gender mainstreamed.

Other EU-funded initiatives to promote women’s labour market participation are the Team Europe Initiative ‘Investing in Young Businesses in Africa’ and the Investment Climate Reform (ICR). For instance, based on the support provided through the ICR Facility, the Tanzania Agricultural Development Bank Limited launched a Gender Scheme in March 2023, allowing for wider access of women and youth to credit facilities( 60 ).

EU delegations and the EU Ambassador for Gender and Diversity engaged at country level and multilaterally in the realisation of gender equality objectives, for instance by integrating a gender perspective into EU political decision making, in political and policy dialogues at country level, and by introducing a gender marker into the civilian CSDP work.

Common Security and Defence Policy (CSDP) Missions and Operations integrated a gender perspective in their activities, supporting women’s participation in peacebuilding and addressing sexual and gender-based violence, including conflict-related sexual violence – not least in Ukraine.

The EU has used restrictive measures (sanctions) as a tool in its gender equality policy toolbox. In 2023, two packages under the EU Global Human Rights Sanctions Regime were adopted in response to sexual and gender-based violence crimes.

3.1.6. SDG #6 Clean Water and Sanitation

The world is currently off-track to meet SDG 6 targets with 2.2 billion people in the world lacking safely managed drinking water services in 2022, around 200 million more than in 2020, while almost half of the global population lacks safe sanitation. In 2023, the EU stepped up its commitment to support SDG 6 by adopting ambitious commitments for the Water Action Agenda at the UN 2023 Water Conference, and notably to support the access of 70 million individuals to an improved safe drinking water source and/or sanitation facility by 2030 and to develop its work to mobilise the private sector with innovative financing under the European Fund for Sustainable Development (EFSD+), to further increase its reach( 61 ).

Under the Water Action Agenda, the EU also committed to improve transboundary cooperation across water basins, including aquifers, to strengthen regional integration, to reduce source-to-sea pollution and make water a key driver for sustainable development, green transition and peace. Together with its Member States and the European Investment Bank, in a ‘Team Europe’ approach, two new flagship initiatives were launched in 2023 on transboundary water management in Africa and Central Asia making over EUR 1.1 billion available for transboundary water cooperation on improved governance, knowledge, and investments with 47 countries in 18 major transboundary water basins. The EU and its Southern Neighbours are also parties to the Barcelona Convention and support the Union for Mediterranean water strategy and ‘Water Policy Framework for Actions 2030’.

The EU continued to address the water-security link in the context of the EU-UNEP partnership on climate and environmental security in the Horn of Africa, the Sahel, the Middle East and North Africa. 2023 was also the year during which the EU upscaled its support to multilateralism on water with the UN, to overcome fragmentation of the water sector at international, regional and country levels, to promote advocacy on the right to water and sanitation, to support a possible future UN Special Envoy on water and to support the development of a UN system-wide strategy.

In the Neighbourhood region, the aim has been to improve governance leading to regional and sub-regional water resilience, including at regional level, through the Water and Environment Support project and the EU4Environment Water and Data programme supporting a more sustainable use of water resources and improving the use of sound environmental data. New initiatives have been launched to improve water supply management, wastewater and sanitation systems in Lebanon (WASH – EUTF Madad) as well as in Jordan to continue providing solid waste management services for Syrian refugees and vulnerable host communities (Al-Ghabawi waste treatment plan). Furthermore, key investment projects for sustainable water management continued to be supported in Jordan (Aqaba-Amman Water Desalination and Conveyor project). The EU and its Member States acted as a catalyst, through a Team Europe Initiative on Sustainable Water Management.

Chronic lack of access to safe water and sanitation, combined with the climate change, resulted in a significant raise in cholera outbreaks, as well as an increase in their duration and mortality. During 2023-2024, the European Commission mobilised the rapid response mechanisms (the Epidemic Tool as well as the Disaster Response Emergency Fund (DREF) seven times and funded responses under the annual Humanitarian Implementation Plans (HIP). In order to streamline responses, the EU is working with its partners to prepare a coordinated approach, aiming at combining response with prevention, as part of a nexus approach.

The EU has supported, through the Commission’s( 62 ) Disaster Preparedness Budget Line (EUR 700 000), the objectives of SDG 6, for example, in Zimbabwe, through the partnership with the Finnish Red Cross implementing the Integrated Strategy for Cholera Risk Elimination and Mitigation. 

3.1.7. SDG #10 Reduced Inequalities

COVID-19 not only wiped out a decade of global progress in reducing inequalities but also worsened the global inequality gap amidst various crises, from conflicts to climate change. Since 2020, the world’s five wealthiest individuals have doubled their wealth, while nearly five billion people have become poorer( 63 ). Inequality, across its various dimensions, is a major constraint for achieving the SDGs, contributing to instability and injustice, both in Europe and in partner countries.

Given how inequalities intersect with all dimensions of sustainable development, the EU continued building a multifaceted response.

First, the Global Gateway strategy serves as a lever to address inequalities by increasing investment in key priorities (energy and climate, digital, transport, health and education and research) whilst pursuing a 360-degree approach based on EU values.

Secondly, the EU continued implementing policy measures and programmes to support inequality reduction. This includes efforts against tax evasion and corruption, investment in social protection systems, human development, and education in partner countries that are most in need. The EU also designed the Team Europe ‘Equality Flagship’ initiatives in partner countries where inequality is a significant challenge and a political priority. From digitalisation in Kenya to decent work in Bangladesh, these initiatives are transformational to reducing inequality.

The EU has actively monitored its efforts on inequalities to target the most vulnerable effectively. The first Inequality Marker (‘I-Marker’) was launched to better understand, track and benchmark the Commission’s impact( 64 ) on reducing inequalities, across all sectors. The I-Marker captures the multidimensional aspect of inequalities actions financed by NDICI-Global Europe. The 2023 Council Conclusions on social, green and digital transition recommended the broadest application of the I-Marker, including in Team Europe Initiatives and with regard to the Global Gateway, and encouraged EU Member States to use it.

The Gender Action Plan III ensures full, equal and meaningful participation for all women and girls. The human rights-based approach (HRBA) puts rights-holders at the centre of EU cooperation. Through its Global Health Strategy, the EU works to put SDG 3 on good health and well-being back on track. And with the first-ever Youth Action Plan, the EU supports young people to lead the global change by engaging, empowering and connecting them.

Social protection is vital for reducing inequalities through redistributive measures like taxes and transfers. It contributes to equal opportunities, income security and access to quality social services. It enables just transitions which leave no-one behind, by providing income security, and mitigates the negative impact of the transitions on income and jobs.

The EU approach to social protection extends beyond poverty-targeted schemes and supports nationally owned social protection systems. The EU draws on its own experience in building strong social security systems based on intergenerational solidarity, aiming for universal access, which proves more effective in reducing inequality than narrow poverty-targeted schemes. Consequently, the EU has initiated the fourth phase of the SOCIEUX+ facility, mobilising EU Member States’ expertise on social protection and labour to partner countries.

The EU has also increased support to social protection through cooperation at country level and integrated it into regional Team Europe Initiatives in Sub-Saharan Africa and Latin America and the Caribbean.

3.1.8. Other major achievements

The unprecedented challenges of conflicts, climate change, and health pandemics have had an enormous impact on children and youth. Representing more than 1.8 billion individuals, young people are key agents of change to help shape more resilient, inclusive, and prosperous societies, and progress towards global commitments such as the 2030 Agenda and the Paris Agreement.

In 2023, the Youth Action Plan in EU external action entered into full implementation, aiming to engage, empower and connect young people as drivers of a greener, fairer, more equal and peaceful planet. More than 30 Youth Sounding Boards in EU Delegations were established, and a monitoring framework has been put in place to track the progress of the implementation. The 2023 edition of the EU-NGO Forum gathered over 130 young human rights defenders around the topic ‘Youth as actors of change for human rights’.

The EU continued to protect children and children’s rights around the globe, including children in armed conflicts. In doing so, it met its commitments under the EU strategy on the rights of the child for 2021- 2024.

The role of culture and creative industries for sustainable development is growing. The ACP-EU culture programme financed by the 11th European Development Fund has provided young people and women with skills, funding and pathways that foster cooperation with the EU, promotes cultural diversity and progresses economic growth through around 500 projects in Sub-Saharan Africa, the Caribbean and the Pacific. The EU also continued its efforts for more sustainable financing for creative industries through blending (finance and technical assistance) with the CreatiFI programme.

3.2.    Green Deal 

3.2.1. SDG #7 Affordable and Clean Energy

In line with the European Green Deal, the Commission continued to support actions in partner countries to increase sustainable energy access and decarbonise the energy sector, contributing to renewable energy generation, access and energy efficiency solutions, while promoting the phasing out of fossil fuels. Energy is very prominent in the list of Global Gateway flagships and in the Global Gateway Strategy, covering a wide range of energy solutions, from hydropower to geothermal plant, but also renewable hydrogen, solar plant or biogas, transmission lines and regional interconnections. Out of the 87 projects on the 2023 Global Gateway flagship list( 65 ), 63 were located in non-Neighbourhood countries( 66 ), among which 28 are related to the renewable energy sector, accounting for 45 % of the total number.

Policy dialogue on energy planning and decarbonisation plans is crucial. At COP28, countries agreed to global goals to triple renewable energy capacity and double the global annual rate of energy efficiency improvements by 2030, and to transition away from fossil fuels in energy systems, in a just, orderly and equitable manner. One of the noticeable achievements of 2023 was the implementation of the Africa-EU Green Energy initiative (AEGEI). This Team Europe Initiative aims at supporting, in Africa, the deployment of at least 50 GW of renewable electricity generation, providing at least 100 million people with access to electricity, by 2030. In November, at COP28, Executive Vice-President of the European Commission Maroš Šefčovič announced a pledge of more than EUR 20 billion from Team Europe partners for AEGEI.

Private sector engagement is a strategic priority for the European Commission, and in the energy sector this was achieved especially via the launch of the Global Gateway Business Advisory Group, to identify challenges, opportunities and trends, looking ahead for more synergies. Concerning programmes, the ‘One Stop Shop’, established in 2023, implemented by GiZ and funded by the EU, Germany, the Netherlands, Austria, Sweden, and Norway, is acting as an intermediary and connecting platform between investors and financiers. The Commission continued implementing investment de-risking financing instruments, to complement the ones available under blending and the European Fund for Sustainable Development guarantees such as DESIREE, ElectriFI, and Climate Investor One, among many others. At the Global Gateway Forum in October, the EU, the European Investment Bank and Bangladesh signed agreements worth EUR 395 million for renewable energy projects to boost renewable energy capacity and access to energy.

In 2023, a Just Energy Transition Partnership was concluded with Senegal to support decarbonisation efforts by accelerating the deployment of renewable energy, and achieving universal access to energy, with EUR 2.5 billion in new and additional financing mobilised from international partners and multilateral development banks. To promote energy security and the decarbonisation of hard-to-abate sectors, renewable hydrogen is also expected to play a key role, with mutual benefits for the EU and partner countries. At the Africa Climate Summit in September 2023, the Green Hydrogen Strategy and Roadmap for Kenya was launched. Other examples of support include in Chile, Mauritania and Namibia. The EU also signed memoranda of understanding to develop cooperation on renewable hydrogen with Argentina and Uruguay.

The Morocco Decarbonisation and Climate Resilience programme aims to support the decarbonisation and climate resilience of the Moroccan economy through an acceleration of the adoption of green technologies and sustainable practices by businesses in Morocco. The programme will leverage an estimated EUR 400 million of financing. Overall, the programme is expected to result in an estimated saving of 1.5 million gigajoules of energy per year – equivalent to around 250 000 barrels of oil – as well as avoiding 185 000 metric tonnes of CO₂ emissions per year – equivalent to the annual greenhouse gas emissions of 110 000 passenger cars per year.

The EU4Energy programme contributed to further strengthen legislative and regulatory frameworks as well as evidence-based policy design and promoted a conducive environment for sustainable energy investments. The programme supported Ukraine, Moldova and Georgia in accelerating the development of renewable energy legislation. The Council of European Energy Regulators continued work in Armenia and Azerbaijan on the development of liberalised gas markets and energy efficiency measures.

3.2.2. SDG #11 Sustainable Cities and Communities

Urbanisation and the role of cities in the economy constitute a central element in the development challenges and opportunities in our partner countries. With cities globally contributing 80 % of gross domestic product, 70 % of global energy consumption and 70 % of global carbon emissions and nearly one billion people living in slums, actions in and by cities will be central for realising the ambitions of key strategic initiatives such as the Global Gateway and the external dimension of the European Green Deal.

2023 saw advances in a range of country programmes in support of sustainable urbanisation, e.g., in Tanzania, Cameroun, Kenya, Rwanda, Ghana and Guinea Bissau. Urban investments have been supported through blended finance, e.g., urban mobility in Senegal, and the EFSD+ will further support mobilisation of finance through programmes under the investment window targeting sustainable cities. The urban development technical assistance facility provided support to EU Delegations and their engagement with counterparts in the field of sustainable urbanisation.

Local authorities will be key for achieving SDG 11 and most of the other SDGs. The European Commission is seeking to strengthen links between EU cities and cities in partner countries. The city-to-city partnership for sustainable urban development has so far contributed to the establishment of 57 partnerships active in the different dimensions of sustainable urban development.

The European Commission is the co-founder of the Global Covenant of Mayors initiative, whose signatory cities commit to the implementation of sustainable energy policies as well as local climate change mitigation and adaptation activities. The initiative has regional chapters that receive EU support in every area of the world with the largest numbers of signatory cities in the regions of the Eastern Partnership, Southern Neighbourhood, Sub-Saharan African, and Latin America. To date, the Global Covenant brings together more than 12 600 cities in 144 countries( 67 ).

Rapid and often unplanned urbanisation is a key factor in exacerbating disaster risk and the impact of disasters. The European Commission is strengthening disaster preparedness in urban contexts with its humanitarian partners, as outlined in the Disaster Preparedness Guidance Note( 68 ). Urban preparedness is one of the 2021-2024 funding priorities for the Disaster Preparedness Budget Line.

The European Union has supported Ukraine in the field of sustainable urban development and planning through the New European Bauhaus initiative and the LIFE instrument.

3.2.3. SDG #12 Responsible Consumption and Production

The EU is committed to pursuing its international cooperation on Sustainable Consumption and Production (SCP), including the circular economy, as an essential contribution to SDG 12. Promoting economic development models that are more efficient in the use of energy and natural resources is critical to achieve sustainable development within planetary boundaries. EU international cooperation in these areas focuses mainly on developing awareness and knowledge to build the case for the green/circular economy transition, supporting policy and institutional frameworks including via country, regional and multilateral policy dialogues, promoting green business development in key value chains and mobilising finance for the global circular economy transition. Contributions to responsible consumption and production also derive from EU actions addressing a range of other SDGs, notably SDGs 8 (Decent work and economic growth), 9 (Industry, innovation and infrastructure) and 13 (Climate change).

At global level, the objective is to engage in multilateral processes to promote higher environmental standards, a level-playing field for the private sector and the provision of financial and technical assistance. The EU has stepped up its engagement with non-EU countries, at global, regional and country level, to support SCP, with a focus on circular economy. In 2023, over 100 partner countries worldwide have benefitted from EU support in relation with SCP and the circular economy under the Switch to Green and other initiatives. The latter includes SWITCH to Circular Economy Value Chains, regional SWITCH programmes in Asia, Africa and the Mediterranean, the AL Invest Verde programme in Latin America and the Caribbean, the EU for Environment for the East Neighbourhood, the SWITCH to Green Facility, and EU-supported global programmes like the Partnership for Action on Green Economy (PAGE) and the Green Economy Coalition. Furthermore, in 2023 the EU made new commitments to support the circular economy transition through some 30 bilateral actions in over 25 partner countries, as well as through sub-regional and global actions (SWITCH to Circular Economy in East and Southern Africa, and the EU Circular Economy Resource Centre).

In 2023, the EU supported partner countries in the elaboration of their national circular economy roadmaps and action plans, including by providing technical assistance to Mauritius, Nigeria, Albania, and North Macedonia, as well as facilitating peer-to-peer exchanges, notably among members of the Circular Economy Coalition of Latin America and the Caribbean. The EU also supported the implementation of green/circular action plans, with initiatives like industrial waste maps in Azerbaijan, Georgia, and Ukraine, and support to small and medium-sized enterprises in adopting SCP practices in key sectors such as plastics and food waste, especially for circular economy and Resource Efficient and Cleaner Production.

The EU further delivered on its ambition to lead by example a circular economy transition globally, by showcasing relevant EU policies, regulatory measures and international actions at the World Circular Economy Forum held in Finland.

Lastly, the EU also supported the revision of the UN PAGE 2030 strategy, which aims to inspire, inform and enable a global change: ‘From Recovery to Economic Transformation - Greener, Circular, and Job-Rich Economies by 2030’.

3.2.4. SDG #13 Climate Action

Climate change is a key priority of the EU’s external action and a central theme of the European Green Deal, in line with the 2030 Agenda, the Paris Agreement and the Sendai Framework for Disaster Risk Reduction. The EU remains committed to contributing to SDG 13 on climate action and engages with partner countries particularly via the development and roll out of Team Europe Initiatives (TEIs) in the framework of the Global Gateway. The EU, its Member States and the European Investment Bank are together the biggest contributor of public climate finance to developing economies, providing EUR 28.5 billion in 2022.

The EU has set in the NDICI-Global Europe Regulation a spending target of 30 % to contribute to climate objectives, to which Commission President von der Leyen pledged an additional EUR 4 billion( 69 ). The EU also committed to double its external funding for biodiversity to EUR 7 billion for the period 2021-2027( 70 ).

In 2023, under the NDICI-Global Europe, all decided actions contributed to the climate spending target for a total of EUR 3.2 billion (corresponding to 25 % out of the total committed amount). Cumulative figures for 2021-2023 resulted in contributions to the climate spending target of EUR 8.781 billion.

At COP28, the EU secured an agreement describing an agreed global decarbonisation pathway for the coming decades. Parties also established the operationalisation of funding arrangements and a fund to address climate related ‘loss and damage’ in particularly vulnerable developing countries, to which the European Commission has pledged EUR 25 million. The EU became a signatory of three non-negotiation outcomes: the ‘Declaration on Climate, Relief, Recovery and Peace’, the ‘Getting ahead of disasters: a Charter on finance for managing risks’, and the ‘Declaration on Climate and Health’.

Climate change and the environment are being integrated by the EU into all its policies, across a broad range of sectors while extending support to partner countries. The European Commission has continued to champion methane emission reduction efforts by increasing our contribution to the Global Methane Pledge( 71 ), by funding actions in total of EUR 175 million.

In 2023 further progress was made in the TEI on Adaptation and Resilience in Africa, including a EUR 80 million contribution to the Adaptation Fund. A decision was adopted to contribute with EUR 30 million to the Global Shield against Climate Risks and EUR 10 million to the Africa Risk Capacity in disaster risk finance. In 2023 the EU launched new programmes in support of the Great Green Wall (GGW) initiative, a flagship African-led initiative to regreen the Sahel from Senegal to Somalia, aiming to restore 100 million hectares of degraded land and sequester 250 million tons of carbon, while improving food security and transforming millions of lives in the Sahel.

The EU continues to factor climate and environmental risk considerations into humanitarian actions, in line with its commitments in the 2021 Communication on ‘The EU’s Humanitarian Action: new challenges, same principles’( 72 ). One of the priorities of the dedicated budget line for preparedness focuses on climate and environmental resilience.

In 2023, the European Commission dedicated EUR 78 million to disaster preparedness activities including for supporting communities to prepare for the impacts of climate change and aimed to mainstream disaster preparedness across EU funded humanitarian actions by making interventions risk-informed.

The EU underlines the importance of investing through all available funding sources in the resilience of the communities most at risk to climate change, thereby alleviating the impact of climate shocks on these communities. In addition, the EU ensures that the environmental footprint of humanitarian aid operations is reduced, for example through switching from diesel generators to solar systems, thus contributing to climate change mitigation.

All of the above contributes to the voluntary tracking of EU climate-related expenditure from the EU’s humanitarian aid budget. The budget is not subject to the 30 % climate mainstreaming target under the EU’s 2021-2027 multiannual financial framework, but it was a commitment made in the 2021 Communication on the ‘EU’s Humanitarian Action: new challenges, same principles’( 73 ).

In Ukraine, the EU supported the Ukrainian Climate Office focusing on climate policy development and financed initiatives for accounting and phasing out greenhouse gases, ozone depleting substances and fluorinated greenhouse gases.

3.2.5. SDG #14 Life below Water

Progress has been slow in addressing threats and impacts, including pollution, eutrophication, overfishing, biodiversity and ecosystems loss and climate change. Most SDG 14 targets will not be reached by the set deadline.

The ocean is an increasingly important aspect of EU diplomacy and cooperation in the context of the EU commitment to double external funding for biodiversity over 2021-2027. In 2023, the European Commission maintained its strong involvement in the negotiations towards a ‘High Sea Treaty’( 74 ), adopted in June 2023. It fostered understanding of the Treaty among parliamentarians in Africa and Latin America and the Caribbean, and supported small Pacific Island States for ratification through the Office of the Pacific Ocean Commissioner. It maintained its position that deep seabed mining should not start before sufficient scientific knowledge of deep-sea ecosystems is available, that it can be demonstrated that no harmful effects arise from mining, and the necessary provisions in the exploitation regulations for the effective protection of the marine environment are in place.

Cooperation took place through a dense network of projects and programmes with an integrated approach to address drivers of ocean degradation, linking food security, coastal resilience and livelihoods with natural resources preservation.

Amidst the current food security crisis, special emphasis was placed on the transformative potential of aquatic foods. At the global level, EUR 20 million were committed to develop new aquatic food value chains for vulnerable populations. The EU also continued to strengthen the sustainability of aquatic food value chains in various countries through the EUR 48 million ‘FISH4ACP’ programme. A mid-term evaluation of the programme was launched in 2023 to take stock with all stakeholders and to maximise impact for SDG 14.

Two regional programmes were adopted, in West Africa and Southern Africa, addressing international ocean governance, sustainable blue economy and marine conservation. The European Commission, in partnership with the African Union, also set up an Africa-Europe ocean strategic Group with the aim to jointly advance the implementation of SDG 14 and the other ocean-related targets of the 2030 Agenda. In Benin, the EU supported the management of the Mono delta biosphere reserve and the development of the Nazoumè-Bouche du Roy marine protected area. In ASEAN and its Member States, the EU promoted enhanced policy action regarding plastic pollution, waste avoidance and waste management to prevent plastic pollution.

In the Southern Neighbourhood, regional programmes have contributed to the objectives of the Barcelona Convention, targeting the causes of biodiversity decline and the protection of threatened ecosystems. For example, the Water and Environment Support project has an important component dedicated to tackling marine pollution, and the SEMPA project contributes to the achievement of Good Environmental Status in the Mediterranean.

In the Eastern Partnership, the EU4EMBLAS programme aims at improving protection of the Black Sea through technical assistance for environmental monitoring, capacity building, assessment of environmental status and awareness raising. The European Commission also invested EUR 33.5 million to strengthen marine environmental monitoring and forecasting through its Copernicus satellite programme and Wekeo service, allowing the international research community to access all products describing the past, present and future of the earth system. A Copernicus Regional Centre for Latin America and the Caribbean was set up to facilitate access to Copernicus.

3.2.6. SDG #15 Life on Land

Further to the adoption at UN Biodiversity COP15 of the ambitious Kunming-Montreal Global Biodiversity Framework (GBF), the EU stepped up its efforts to support its partners to implement this agreement, with a EUR 69 million package on capacity development for the implementation of the GBF. With a view to meeting the European Commission’s political ambitions to double its external funding to biodiversity (equivalent to EUR 7 billion for the period 2021-2027), a comprehensive approach that combines the development of a substantial portfolio of biodiversity-related actions and the mainstreaming of biodiversity across relevant sectors and actions has been deployed. Specific actions, such as the NaturAfrica initiative, have been designed to protect biodiversity while creating economic opportunities and better livelihoods for local populations through an integrated landscape approach.

At the UNFCCC COP28, the European Commission signed a Memorandum of Understanding (MoU) to establish a Forest Partnership with Honduras. This MoU comes in addition to the five already signed with Mongolia, Guyana, Zambia, Uganda and the Republic of Congo at the UNFCCC COP27. Forest Partnerships are designed to address global challenges such as climate change and biodiversity loss, while meeting socio-economic development objectives through the promotion of forest-related value chains and sustainable trade in wood products. In 2023, all original signatory countries worked to develop roadmaps for the implementation of the partnerships. The European Commission also further pursued its work on Forest Law Enforcement, Governance and Trade (FLEGT), notably via voluntary partnership agreements (VPAs), which have helped improve governance and regulatory frameworks leading to greater transparency and accountability, as well as sustainable forest management. Ghana became the second country in the world and first in the African continent entitled to issue FLEGT licenses.

In the Sahel and Horn of Africa, the EU continued to support the African-led Great Green Wall initiative. The Knowledge for Great Green Wall Action regional programme was signed and started its operations, supporting the institutional architecture of the Great Green Wall and relevant stakeholders in accomplishing the initiative objectives. In the Southern Neighbourhood, regional cooperation programmes have aimed at reducing the pollution reaching the Mediterranean Sea with a focus on plastic pollution and strengthening the efficient use of water in urban and rural areas, through a Source to Sea continuum approach, while promoting circular economy and contributing to the conservation of biodiversity and sustainable management of natural resources in the Mediterranean Region. A regional support for Mediterranean forest genetic conservation was launched, as well as a baseline study on Land Use, Land-Use Change and Forestry (LULUCF).

Cooperation with Eastern Partnership countries targeted biodiversity loss, ecosystem restoration, sustainable forestry and management of protected areas, including by extending the Emerald Network to ensure long-term survival of species and halt land and habitat degradation, as part of the regional EU4Environment programme.

Technical assistance was also provided to Ukraine in the field of biodiversity protection.

3.2.7. Other major achievements

Russia’s unprovoked aggression against Ukraine since February 2022 demonstrated that the European Instrument for International Nuclear Safety Cooperation (INSC) can meet the needs of partners under challenging and constantly evolving conditions. The provision of support to Ukraine to address the consequences of the unprovoked Russian invasion and continued aggression is a priority. This includes restoring stolen, looted and destroyed nuclear and radiation protection related infrastructure in Ukraine.

The INSC funded programmes in Ukraine continued to be implemented without delays, despite the war-related hardship conditions such as insecurity and frequent electricity blackouts. These achievements are due to the determination and resilient efforts of the Ukrainian beneficiaries, the implementing partners and the coordination efforts of the EU through its support organisations in Ukraine.

The EU also continued the implementation of the EU’s commitment under Annex 3 of the Joint Comprehensive Plan of Action (JCPoA) relating to civil nuclear cooperation with Iran.

3.3.    Digitalisation, Science, Technology and Innovation 

3.3.1. SDG #9 Industry, Innovation and Infrastructure

Global Gateway, Digital Connectivity

In 2023, the EU placed an emphasis on promoting secure and trusted connectivity. It partnered with the Democratic Republic of the Congo, Colombia, and Kenya to launch digital economy packages, as an integrated approach to bridging the digital divide. Aligned with the Global Gateway strategy, these packages focus on critical areas such as private sector engagement, connectivity, governance, cybersecurity, and Earth observation.

At the Global Gateway Forum in October 2023, the European Commission and Finnfund signed the Africa Connected Programme, a landmark agreement aimed at mobilising more than EUR 1 billion in sustainable investments for digital infrastructure and digital service platforms in Sub-Saharan Africa. Finnfund becomes a first-time implementing partner of EFSD+ Guarantees, where the European Commission contributes through the NDICI-Global Europe instrument with EUR 100 million.

Through the ‘Africa-Europe Digital Regulators Partnership’ (2023 Annual Action Plan) the EU took a key step to boost a conducive environment for digital infrastructure investments and achieve universal digital connectivity in Africa. The programme will promote regional convergence for affordable, secure, reliable and high-speed connectivity infrastructure and services. It will also work towards the harmonisation of broadband mapping systems in several Sub-Saharan Africa countries.

2023 enabled advances towards EU digital connectivity goals moving from identification to concrete pipeline development thanks to extensive studies carried out to identify and prioritise project opportunities. The focus remains on developing the EurAfrica Gateway (covering investments in international submarine cables) and Regional Fibre Optic Backbones in Africa (covering investments in regional/cross-border terrestrial links), regional first- and middle-mile projects. Moreover, the EU is seeking partnerships to strengthen last-mile connectivity, which is key to reaching end-users and complementing investments in digital infrastructure at national level.

The Global Gateway flagships launched in 2023 showcase that the ‘Team Europe’ approach is at work to reduce the digital divide and to enable secure and trusted digital connectivity. Indeed, the EU and its Member States jointly adopted in 2023 the Regional Connectivity Team Europe Initiative (TEI) in Central Asia and the ASEAN Sustainable Connectivity TEI paired with the Philippines TEI Digital Transformation and Connectivity, and the launch of the Copernicus mirror site in the Philippines.

The Digital for Development Hub (D4D Hub) and The Knowledge Hub Digital (KHD)

As of 2023, 16 Member States have joined the Digital for Development Hub (D4D Hub) and all its four branches – Africa, LAC, APAC and Neighbourhood Branches – and 10 thematic working groups are now actively promoting the EU human centric model of digital transformation via increased coordination, dialogue and joint action between the EU, its Member States, agencies and European Development Finance Institutions (DFIs).

Meanwhile the Knowledge Hub Digital (KHD) facility has provided twenty-four technical assistance missions on e-governance and eServices across Africa, the LAC region, and to some Delegations in Asia Pacific. In Sub-Saharan Africa, the Democratic Republic of the Congo welcomed KHD experts to work on elaborating the country’s Digital Strategy; Rwanda mobilised KHD for Programming Smart Cities TEI, and Mozambique took KHD advice on its finance law ‘PFM and DRM Support Programme 2’ and on interoperability.

E-services, including e-governance and skills, Cybersecurity and cyber-resilience

In 2023, EU took forward its collaborations with ITU, UNDP, UNESCO, OHCHR and the UN overall, particularly on disinformation, gender equality in digitalisation and artificial intelligence, towards the overarching aim to promote EU’s open internet policy and human centric digital governance. To contribute to the same aim, the EU also participated to the Internet Governance Forum 2023 in Kyoto and prepared the ground for a deeper cooperation with Smart Africa on e-governance in 2024.

The EU moved forward with implementing the Multilateralism and Digitalisation programme through actions on capacity building in digital transformation for policy makers, open-source ecosystem enablement for public services innovation, universal meaningful connectivity indicators, and partnership with UNESCO to support the implementation of the ‘Recommendation on the Ethics of AI’.

The EU also set up a new regional programme ‘Safe Digital Boost for Africa’ creating space to collaborate with African counterparts on e-governance, cybersecurity and e-commerce. The EU engaged with ITU and UNDP to join up activities with partners on digital public infrastructure/digital public goods, notably through the UN Joint SDG Fund and the new regional e-governance programme.

The EU-LAC Digital Alliance Days in Cartagena in November 2023 jointly defined priorities for further specific cooperation under the five thematic policy dialogue priorities: e-governance (digital identity, digital signature and interoperability), cyber security, artificial intelligence, data governance and inclusive connectivity.

The EU also prepared a guidance note on enhancing digital skills and education, as this is a key component of EU policies and approach to international digitalisation partnerships.

The European Commission has strengthened its role and position as a key provider of cyber capacity-building, enhancing its cooperation at regional and national level, building on a needs-based, human-centric and multi-stakeholder approach.

In the context of the European Commission’s growing investments in digital programming but also to secure our investments on transports, infrastructure and connectivity, a cybersecurity mainstreaming toolbox was developed. It establishes a set of indicators to be considered throughout programming to assess the cyber resilience of initiatives and their vulnerability to malicious cyber activities.

Digital entrepreneurship

AEDIB 2.0 is a flagship regional programme of the EU-African Union Summit - Regional Indicative Programme for Sub-Saharan Africa with a budget of EUR 35 million. A group of six EU Member States (Belgium, Germany, Estonia, France, the Netherlands, and Finland) together with the European Commission has worked to operationalise the flagship for an amount of EUR 2.5 million.

Space Technology and Earth Observation

The EU space programme increasingly appears as a crucial tool for the green and digital transition across Africa, Asia, the Pacific, Latin America, and the Caribbean. It is becoming a key framework for EU cooperation with partner countries.

The EU and the African Union launched the first part of the EU-Africa space partnership programme aimed at strengthening cooperation on Earth observation and satellite navigation, and the second phase of the Global Monitoring for Environment and Security and Africa (GMES&Africa) continued to roll out successfully.

The EU-LAC Digital Alliance Days advanced the regional cooperation on digital connectivity and space with Latin America and the Caribbean (LAC), notably on preparations for two regional Copernicus centres and the extension of the BELLA cable. BELLA II aims at further extending secure connectivity between the EU and LAC research and education networks to countries like Peru, Costa Rica, Guatemala, El Salvador, and Honduras, as well as to the Caribbean.

In Asia, 2023 was the year of the launch of the Copernicus support action programme in the Philippines, with the setting up of a Copernicus mirror site and pilot projects supporting better informed decision-making for the benefit of ecosystems and local livelihoods. A programme on satellite connectivity in Central Asia aimed at bridging the digital gap was also launched, starting with the regulatory and policy connectivity environment.

Research and Innovation

Giving substance to Global Gateway's education and research pillar was a top priority this year; for instance work advanced to support ‘Regional Centres of Excellence (RCoEs)’ related to green transition in Sub-Saharan Africa, to support research and innovation through the ‘EU-Africa space cooperation’ programme, and to facilitate the implementation of the joint African Union-EU Innovation Agenda adopted on 19 July 2023.

The 2023 ‘ACP Innovation Fund’ activities included digital innovations in agriculture, valorisation of research results, intellectual property, natural resource management, urban development, waste, energy and One Health. The ‘ACP Policy Support Facility’ provided high-level policy recommendations for new science, technology and innovation (STI) policies and strategies at the request of Kenya, Cameroon, Guinea and organised a mutual learning exercise on research and innovation (R&I) strategies and policies, which gathered representatives from 13 OACPS countries.

The ‘STI for Sustainable Development Goals (SDGs) Roadmaps in Sub-Saharan Africa’ pilot project initiated in cooperation with the Joint Research Centre in 2022, has moved in 2023 to its second phase, focusing on six target countries (the Gambia, Malawi, Mauritius, Namibia, Rwanda and the Seychelles) to work on designing STI for SDGs roadmaps to guide investments in R&I.

In 2023, the EU scaled up its EU4Digital initiative with the aim of driving the Eastern Partnership countries’ integration with the EU digital single market and promoting further investments under the Economic and Investment Plan. The roll-out of secure and affordable broadband connectivity in rural areas and connecting more than 300 Research and Education Institutions with their EU counterparts, benefiting 730 000 students, teachers and scientists was supported.

3.3.2. Other major achievements

SDG 9 aims at building resilient infrastructure, promoting inclusive and sustainable industrialisation and fostering innovation. In 2023, the European Commission and the EU Member States have continued to strengthen the implementation of the Global Gateway Strategy through concerted efforts with various stakeholders to advance connectivity and infrastructure development( 75 ). 

The first Global Gateway Forum of October 2023 brought together over 90 high-level representatives from partner countries and the private sector. They sealed over EUR 3 billion worth of commitments with a wide array of partners, strengthening the collaboration with the EU private sector. The Global Gateway Business Advisory Groups was also established.

In December 2022, the EFSD+ Operational Board gave its green light to start the negotiations on 40 guarantee proposals submitted by European Development Finance Institutions for Sub-Saharan Africa, LAC and Asia Pacific regions, with the aim of mobilising over EUR 50 billion in sustainable investments. A package of 24 guarantee programmes amounting to EUR 2.4 billion was endorsed by the Operational Board of EFSD+ to support investments – expected to total approximately EUR 17 billion – in the EU’s neighbourhood and enlargement countries, in priority areas like energy, digital, and private sector competitiveness.

In Africa, the implementation of the Global Gateway focuses on identifying and preparing investments, mainly along the Strategic Transport Corridors endorsed in 2021. Twelve operations have been approved (or are about to be approved), for a total investment of more than EUR 3 billion, with an EU contribution exceeding EUR 300 million. In the Asia–Pacific region, emphasis was placed on developing the Trans-Caspian corridor in Central Asia. In addition, investments in urban mobility in India, and railway and ports projects in South-East Asia are under consideration.

In Latin America and Caribbean, priority lies on implementing the Global Gateway Investment Agenda, launched during the 2023 EU-CELAC Summit, with focus on urban mobility, railway and regional maritime transport projects involving EU Financial Institutions.

On more global files, several initiatives have been undertaken to promote the decarbonisation of transport as ‘MobiliseYourCity’ aimed at providing clean transport solutions for urban mobility, promoting the use of renewable and low carbon fuels for maritime transport and sustainable aviation fuels. Furthermore, the Global Green Shipping Corridors initiative has also been launched to complement these efforts.

3.4.    Sustainable Growth and Jobs

3.4.1. SDG #8 Decent Work and Economic Growth

2023 showed the necessity to scale up action in support of sustainable investments and their enabling environment around Global Gateway flagships and beyond. The level of priority and urgency further increased on certain strategic files for the Commission. These included for instance the partnerships on critical raw materials in the context of a fast evolving geopolitical context following the adoption of the Commission’s ‘CRM package’ on 16 March 2023, cooperating with partners on the development of sustainable regional value chains, and scaling up engagement with the private sector. More broadly, the Commission reinforced its action in support of sustainable growth, decent jobs and investments, including around the EU-LAC Global Gateway Investment Agenda (GGIA) in July.

Supporting, de-risking and scaling up investments in partner countries

Significant progress was achieved on EFSD+ deployment, including the signature of the first Open Architecture guarantees in October and of 19 EFSD+-related contribution agreements with 13 implementing partners.

The negotiations of Open Architecture guarantees went forward despite significant challenges. Externally, the current geopolitical context requires intensive and reactive risk monitoring (including foreign currency risk) around financial operations in partner countries. Internally, there is a need to combine effective steering of EFSD+ towards delivery on Global Gateway geographic and thematic priorities, contributions to NDICI-Global Europe targets and maintaining an acceptable risk level and enough leverage on investments generated in partner countries.

This was addressed in particular through intense rounds of internal consultations, active steering by the Commission and consultations with all relevant Team Europe stakeholders. Very intense work was conducted throughout the year with the EIB to further improve coordination and joint steering of operations in third countries, in particular in support of targeted SME financing.

More generally on risk management for development cooperation, the Risk Management Framework Plus exercise coordinated by the Commission confirmed the relevance of its scope (all instruments and all countries in principle) but also the need for a more streamlined tool, which will be used as of 2024.

Sustainable Finance

In 2023, the High-level Expert Group (HLEG) continued its reflections on scaling up sustainable finance in low-and middle-income countries and published its Preliminary Findings & Recommendations report in June( 76 ). The recommendations of the High-Level Expert Group will inform the Commission for its future strategy on scaling up sustainable finance in EU’s partner countries, while they don’t commit the Commission nor do they preclude any policy outcomes.

Further progress was made towards the launch of the Global Green Bond Initiative (GGBI), aiming to promote the development of green bond markets in LMICs. Work also advanced on the establishment of the Sustainable Finance Advisory Hub, a technical assistance programme providing support on the development of sustainable finance frameworks and sustainability-related financial instruments in partner countries. The hub will also have a technical assistance arm dedicated to the GGBI.

Creation of decent jobs

The Commission continued to develop and mainstream the employment impact assessment methods and practices to promote the creation of more and better jobs in Sub-Saharan Africa in cooperation with ILO. The number as well as certain quality aspects of the jobs created by EU-supported investments were estimated and drivers for job creation were further identified. Capacities of partner countries’ public institutions on how to systematically integrate the employment impact considerations into policy design were improved. Employment impact assessment methods were also discussed and disseminated among financial institutions.

Tools to support partner countries were further developed with regards to implications of new EU legislation setting higher standards for access to the EU market. In anticipation of the Corporate Sustainability Due Diligence Directive (CS3D), three new projects aimed at promoting accompanying measures targeting key stakeholders in partner countries were initiated, providing amongst others access to training and relevant information to guide due diligence in value chains. The Commission advanced its work with EU Member States on a Global Team Europe Initiative that seeks to bring together, in a help desk, information and guidance for partner countries’ stakeholders on available accompanying measures.

Further work was conducted on strengthening the respect of international labour standards and especially on eradicating child labour, with one flagship project (CLEAR Cotton) ending and bringing about valuable results and a new important project on eradicating child labour in the coffee and cobalt value chains starting.

Amongst others, the Commission further supported the Team Europe Initiative on Investing in Young Businesses in Africa (IYBA). Several new programmes started or were developed:

-A new programme, IYBA SEED, which works to strengthen African entrepreneurship ecosystems, started implementation in Benin, Togo, Senegal, Kenya and South Africa.

-A new blended finance programme, IYBA Invest.

-The first part of the IYBA WE4A (Women’s Entrepreneurship for Africa) was contracted.

IYBA was also launched at country level in Togo, Kenya and Comoros.

In 2023, the Commission supported financial access for small and medium-sized enterprises, capacity building and economic development, with a special focus on women entrepreneurs in Libya, Jordan and Lebanon. Two new regional projects have also been contracted in 2023 to promote an enabling policy and regulatory framework for women entrepreneurs’ financial inclusion and access to finance.

Trade facilitation, investment climate, economic and fiscal governance

EU Business Fora are unique events to promote active dialogues between public and private stakeholders, local and European including business organisations, chamber of commerce, etc. The Commission organised over 20 fora at regional and country level in Africa, Asia and Latin America. European and partner countries’ private and public sectors actively participated. The procurement procedure to establish a permanent structure for the EU-Africa Business Forum (EABF Secretariat) was completed.

The Commission set up the Global Gateway Business Advisory Group (BAG) as one of the main ways to engage with the private sector and ensure it is heard in the implementation of Global Gateway at strategic level. The BAG gathers CEOs and senior executives of European companies, small and medium-sized enterprises and business associations to assist the European Commission to strengthen cooperation on Global Gateway strategy and implementation with the European private sector.

The Commission further strengthened economic and fiscal governance through various financing instruments, support to reforms and policy dialogue within the framework of Budget Support in line with EU Global Gateway objectives. Five additional actions were approved under the ‘Collect more - spend better’ agenda and the Commission financed and contributed to numerous assessments of public finance management and procurement systems. It also consolidated Team Europe coordination in IFIs.

Case study

3.5.    Migration and forced displacement

3.5.1. SDG #10.7 Reduced Inequalities

Migration

In 2023 the EU further developed its strategic approach on migration. Anchored on comprehensive partnerships, targeted outreach and tailor-made support, EU support was guided by dedicated Action Plans covering the key migratory routes towards Europe. Migration Action Plans were adopted in June for the Western Mediterranean and Atlantic routes and in October for the Eastern Mediterranean route. The Commission also invested at global level, including through the Global Alliance to Counter Migrant Smuggling, launched in November 2023. Furthermore, Talent Partnerships initiated with five key partner countries (Morocco, Tunisia, Egypt, Pakistan and Bangladesh) were taking shape in 2023, promoting skills and labour mobility benefitting both the partner countries and Europe.

Migratory pressure from North Africa saw a sharp increase in 2023. In line with the Migration Action Plans launched, EU commitments of EUR 318 million were adopted aiming to continue to improve capacities in the areas of protection and social cohesion, migration governance, combatting migrant smuggling, facilitating voluntary returns, reintegration and legal migration.

In the Western Balkans, migratory pressure decreased by 31 % in 2023 compared to 2022, thanks to EU support, implementation of the EU Western Balkans action plan through visa policy alignment, increased EU agencies’ presence, and extensive EU funded migration programmes in the area of border and migration management. In Türkiye, an additional EUR 3 billion was provided for refugee and host community support for the period 2021-2023. Since 2023 there has been renewed cooperation with the EU, including the definition of specific priorities and programmes in close collaboration. In June 2023, implementation started for a new regional programme for the Western Balkans aimed at combatting migrant smuggling and trafficking in human beings.

In Sub-Saharan Africa, the coup d’état in Niger in July occurred in an increasingly unstable Sahel region, complicating the management of mixed migration movements across the routes. The new situation has limited the resettlement of refugees evacuated from Libya under the Emergency Transit Mechanism (ETM), and complicated the voluntary return of migrants stranded in the north of Niger. Between August 2022 and November 2023, the NDICI-Global Europe funded Migrant Protection, Return and Reintegration programme assisted 14 171 migrants with voluntary returns from Sub-Saharan African countries, while 19 578 migrants received reintegration support. EU engagement with Mauritania gained momentum in the context of increased irregular arrivals to the Canary Islands. EU engagement was also strengthened with Côte d’Ivoire, Guinea, Senegal and The Gambia, after the launch of the 10-point plan for Lampedusa, addressing increased irregular arrivals from Tunisia and Libya.

In Asia, migration dialogues started with Bangladesh and Pakistan in March 2023, including the launch of respective Talent Partnerships. New actions were adopted in the areas of sustainable reintegration (Pakistan), preventing and addressing trafficking in human beings and smuggling of migrants (South Asia), and labour migration (South-East Asia). The Cooperation and Dialogue on Migration and Mobility (EU project supporting the Common Agenda on Migration and Mobility) with India entered its second phase in October 2023, with the aim to strengthen legal migration pathways and reinforce institutional capacity and improve awareness of irregular migration and its risks. A challenging situation unfolded following the decision of the Pakistan government that foreigners without valid documents had to leave Pakistan by 1 November 2023. More than 400 000 Afghans returned to Afghanistan from Pakistan between September and December 2023, exacerbating existing challenges in that country. In this context, the EU’s support in addressing basic needs and supporting livelihoods of the people of Afghanistan remained all the more relevant.

In the Americas, the EUROFRONT programme boosted the creation of the ATHENS Network allowing improved exchange of information on falsified passports and travel documents between Colombia, Ecuador, Peru, Argentina and Paraguay. In addition, EUROFRONT promoted the creation of a Regional Platform against Human Trafficking and Illicit Migrant Smuggling, in agreement with 10 South American countries.

Forced displacement

In 2023 the Commission upheld its commitments towards refugees, asylum seekers and their hosting countries. At the Global Refugee Forum in December 2023, the EU pledged approximately EUR 9 billion across 15 thematic areas, spanning from specific displacements such as the Afghanistan, Syria and Ukraine crises to commitments in the fields of refugee education, protection, gender equality, and climate action, etc. EU support in 2023 focused on easing the pressure on host countries, enhancing refugee self-reliance, expanding access to third country solutions and promoting durable solutions through immediate humanitarian aid and medium- to long-term development interventions to persons in need of international protection but also internally displaced persons in various countries.

In the Middle East, the EU continued to provide support in response to the Syrian displacement crisis ensuring access to and delivery of basic services through a conflict-sensitive approach to refugees from Syria in neighbouring countries as well as to internally displaced people in Syria. At the Seventh Brussels Conference on Supporting the future of Syria and the region, the EU succeeded in mobilising support through international pledges totalling EUR 5.6 billion for 2023 and beyond. Moreover, the EU continued to support Palestinian refugees in the region.

In the Eastern Neighbourhood, the European Commission continued its support to protect refugees from Russia’s aggression against Ukraine, providing humanitarian aid, assisting in transit, voluntary repatriation, and reintegration efforts. In Moldova, the EU response helped refugees from Ukraine at border crossing points, transit hubs and refugee accommodation centres as well as with cash-based interventions, winter support and protection services. EU support to Armenia addressed the integration needs of over 100 000 Karabakh-Armenians following Azerbaijan’s military offensive in September 2023. Since the beginning of the Russian aggression, EU’s overall support in a ‘Team Europe’ approach to Ukraine has amounted to over EUR 88 billion by the end of 2023. This includes economic, military, and humanitarian support from the EU and its Member States. On 31 December 2023, 4.31 million non-EU citizens who fled Ukraine had temporary protection status in the EU.

In Sub-Saharan Africa, the Sudan crisis received specific attention following the coup in April 2023, which uprooted over six million people, adding to the three million people already displaced within Sudan, making it the largest internal displacement crisis in the world. By the end of 2023 the conflict had led to over 1.5 million individuals displaced into neighbouring countries. EUR 30 million were activated to support Chad, South Sudan and Ethiopia in addressing the Sudanese displacement situation.

In Asia, additional support was mobilised to address the basic needs and support the livelihoods of the people of Afghanistan, including over EUR 57 million for forcibly displaced populations within the country. The EU continued to provide support to improving social cohesion and living conditions of Rohingya refugees and host communities with a EUR 35 million contribution. Finally, an integrated response to resilience and food security was adopted to support forcibly displaced communities in Yemen (EUR 14.8 million).

In the Americas, the EU sustained its leading role in the global response to the Venezuelan crisis.  In March 2023, the EU co-organised the Venezuela Solidarity conference, raising EUR 815 million in new funding. In 2023, two new programmes were adopted, supporting the socio-economic integration of migrants in Colombia and the inclusion of migrants and refugees in the social protection system in Peru. EU support continued for the Comprehensive Regional Protection and Solutions Framework (MIRPS) to promote a coordinated regional response to forced displacement.

In 2023, all decided actions contributed to the migration and forced displacement spending target with a total of EUR 1.673 billion. Cumulative figures for 2021-2023 resulted in contributions to the migration and forced displacement spending target of EUR 5.531 billion( 77 ).

3.6.    Governance, Peace and Security 

3.6.1. SDG #16 Peace, justice and strong institutions

Peaceful, democratic and resilient societies are a prerequisite to other development objectives and human security, with SDG 16 acting as an enabler for other SDGs. The persistent democratic backsliding continued to worsen in 2023, deepening the challenges on governance, peace and security. The number of ‘politically estranged’ contexts has grown, making the EU’s efforts to build long-term peace and security capacities as well as resilience even more pertinent than before. In line with SDG 16, governance, peace and security remain crucial for EU’s external engagement on sustainable development.

The humanitarian-development-peace (HDP) nexus( 78 ) has been one of the major vectors of action, targeting the root causes of fragility and crises, and building up the resilience of individuals, communities and institutions. In this context, the EU has improved the mainstreaming of peace and security, as well as resilience and conflict sensitivity, in its programmes and has continued to pursue the ‘Team Europe’ approach, including when fighting organised crime and the illicit financial flows underpinning their activities.

The EU took initiatives and supported various actions to prevent and combat terrorism, violent extremism, and radicalisation. The coherence of actions related to resilience, peace and conflict sensitivity was ensured through shared analysis of the root causes and drivers of fragility and crisis. In its action at country, regional and multilateral level (for example, the co-chairmanship of the Global Counterterrorism Forum), the EU promotes an approach where rule of law and human rights are at the core of counterterrorism actions.

In 2023, the Commission updated the EU toolset for conflict analysis and conflict early warning (Joint Staff Working Document) rationalising the existing instruments and better aligning them with EU foreign policy, including CFSP/CSDP actions, and programming priorities. The updated toolset allows for a better identification of options for preventive actions, conflict-sensitive engagement and peacebuilding, based on a joint analysis of conflict risks and dynamics.

In 2023, the EU continued support to a stronger Europe in the world by promoting an integrated approach to Security Sector Reform (SSR), as well as by offering expertise and support to capacity building and the strengthening of the entire criminal justice chain in partner countries.

EU election observation is a crucial tool for reinforcing democratic institutions and upholding the principles of the rule of law. In 2023, the EU deployed 15 electoral missions (Election Observation Missions, Election Expert Missions, Election Follow-up Missions) and supported civil society monitoring of electoral processes.

The EU contributes to international peace and security also by deploying 14 civilian Common Security and Defence Policy (CSDP) Missions, which support security sector reforms, border management or build capacity of internal security forces in the Middle East, Africa, South-Eastern and Eastern Europe and the South Caucasus.

The Commission continued to support a project managed by CEPOL in co-operation with EUROPOL, to enhance the institutional capacities of Western Balkans law enforcement authorities to identify and prioritise training needs to tackle more efficiently and effectively the threats posed by organised crime and terrorism and to improve the operational capacities of the WB law enforcement on priority crime areas to implement effective and efficient, up-to-date investigation techniques and use modern international cooperation instruments.

The Global Team Europe Initiative on Democracy (TED)’s coordination network with 14 Member States and civil society was inaugurated in June 2023. The initiative promotes democratic governance in partner countries. As part of the TED, a flagship initiative EU System for Enabling Environment (EU SEE) was launched at the end of 2023 to systematically monitor and enhance support to an enabling environment for civil society in 86 partner countries in support of democracy. In addition, new Financial Framework Partnership Agreements between the EU and global Civil Society Organisation (CSO) networks, targeting women and youth organisations as well as networks and organisations active in areas falling under European Commission priorities, were also concluded in 2023. A Global Initiative on Impunity was established to enhance global capacity and coordination in monitoring, denouncing, and seeking accountability for international crimes and the most serious human rights violations. A Digital Democracy Initiative (DDI) was launched in a collaboration with Denmark to promote and protect local inclusive democratic space in the digital age. 

2023 marked the first year of the implementation of the Youth Action Plan in EU external action (2022-2027) which puts young people at the heart of its external action as an actor of positive change. Two flagship initiatives were launched: the Women and Youth in Democracy Initiative which supports the engagement of women and youth participation in public and political affairs, and the Youth Empowerment Fund which will provide grants and capacity building to youth-led initiatives. Concrete mechanisms for facilitating youth engagement in EU policy making were set up with the renewal of the Global Youth Sounding Board for international partnerships and the creation of more than 30 youth sounding boards in EU Delegations.

Civil society and local authorities’ involvement in Global Gateway and Team Europe Initiatives is key, including for leaving no one behind and adherence to key principles enshrined in the Global Gateway strategy, as well as for monitoring and oversight. Therefore a ‘Global Gateway Civil Society and Local Authorities (LAs) Dialogue Platform’ was established in October 2023 to help ensure that the implementation of Global Gateway is fully inclusive. The Platform consists of 57 members representing a mix of CSO networks, platforms, social partners, professional and business associations and associations of LAs, all working in the area of international development. It was set up as a working group of the Policy Forum on Development (PFD), which regularly organises consultations on regional and thematic programming and implementation. In 2023, the PFD consulted on 15 occasions, including on the mid-term reviews of the Regional Multi-annual Indicative Programmes, the EU Voluntary Review on the 2030 Agenda, and GAP III implementation.

In terms of support for CSOs that encompasses both actions delivered ‘through’ CSOs and actions targeting CSOs (‘to CSO’), commitments amount to approximately EUR 3.58 billion for the first three years (2021-2023) of this MMF. The share of CSO support over the total commitments under NDICI-Global Europe has increased from approximately 12.7 % in the previous MFF to 15.4 % in the new cycle.

Allocations to support Local Authorities through geographic programmes amount to around EUR 499 million for the period 2021-2023, nearly reaching the NDICI-Global Europe indicative benchmark of EUR 500 million (Art. 36).

The Development Education and Awareness Raising programme supported projects that engage Europeans in global issues related to social, economic, and environmental development. As the 2014-2020 projects are coming to an end, they have empowered young people to imagine ways of addressing global crises and counter fear-based thinking. Projects have fostered active global citizenship to promote justice, human rights and democracy, co-responsibility, equity, and sustainable development. A new round of calls for proposals concluded in 2023 with some 16 new projects.

The EU also continued to support justice system reforms in the Western Balkans, focusing on efficiency, independence, integrity and professionalism of the judiciary. To protect the Rule of Law and Fundamental Rights, the EU maintained its strategic partnership with the Council of Europe’s Commission for the Efficiency of Justice.

In 2023, new actions contributing to the ‘human rights, democracy and good governance’ thematic target under NDICI-Global Europe geographic programmes totalled EUR 2.460 billion (corresponding to 25.1 % out of the total committed amount under geographic programmes).

4.    Geographic Overview 

4.1.    Sub-Saharan Africa 

4.1.1.    Introduction (policy developments) 

EU relations with the African Union (AU) focused on the joint implementation of the commitments under the Joint Vision for 2030 agreed at the 2022 EU-AU Summit in all four areas: i) Africa-Europe Global Gateway Investment Package worth EUR 150 billion; ii) peace, security and governance; iii) migration and mobility; and iv) multilateralism. The next EU-AU Foreign Affairs Ministerial and the first Ministerial Follow-Up Committee meetings in Brussels will be a key occasion to take stock, accelerate actions and move the political dialogue forward.

Africa has been very actively advancing its quest for greater representation in the international system. The European Council sent a strong signal in supporting the AU’s reinforced presence in international fora, notably the AU‘s permanent membership of the G20. The ensuing G20 New Delhi Leaders’ Declaration welcoming Africa as new permanent member of the G20 was a welcome development.

The Samoa Agreement, the successor of the Cotonou Agreement, was signed in Apia on 15 November 2023 and is provisionally applied as of 1 January 2024. It provides a more ambitious and modernised political and legal framework for relations with the members of the Organisation of African, Caribbean and Pacific States (OACPS), with a stronger focus on key areas such as climate, investment and political cooperation. The agreement continues to build on a common foundation at EU-OACPS level, complemented by three regional protocols, including the Africa Protocol, focusing on the region’s specific needs, priorities and regional integration processes, with a dedicated institutional framework. One of the ambitions of the new agreement is to increase EU-OACPS political cooperation in the international scene.

While remaining a priority for the EU, West Africa faced many challenges in 2023, suffering notably from political instability, in particular with the coup in Niger and its regional consequences, and from the deteriorating security and humanitarian situation in the Sahel and beyond, with many negative impacts on the populations. Despite notable exceptions such as the positive outcome of the presidential election in Liberia, the region also faced several worrying dynamics in terms of governance, democracy and human rights. Hostile views towards the West increased, in a tense geopolitical environment affecting all the region. The weakening of regional organisations such as the Economic Community of West African States (ECOWAS), and the crisis of coordination bodies such as the G5 Sahel are other important evolutions. This complex environment led the EU to adapt its overall political approach, actions and instruments: cautious regarding the growing hostility of military transition regimes (central Sahel), including with sanctions and suspension of many actions; and ambitious towards the countries with a strong potential and a positive political dynamic, with the help of various external action instruments (three fully fledged electoral observation missions in the region, peace and mediation support, EU Special Representative (EUSR) Sahel initiatives, and financial instruments such as NDICI-Global Europe or the European Peace Facility). The EU applied an integrated approach to help building stability as well as long-term socio-economic development, and address root causes of the conflicts in the region, but also the continuous important challenges related to migration.

The EU closely monitored developments in Central Africa and pursued its foreign policy objectives via a variety of instruments, including its bilateral regular political dialogues and ad hoc exchanges with countries and regional international organisations and its development partnerships. The EU started implementing the various strands of its new Great Lakes Strategy adopted in February 2023 and continued to support the difficult transition process in Chad. The EU supported politically, and at times financially, local and international mediation and conflict resolution initiatives. The EU deployed an expert mission to the Democratic Republic of Congo (DRC) on the occasion of the general elections in December 2023. The EU reviewed and adapted its autonomous restrictive measure regimes against human rights violators and conflict drivers in the DRC and Burundi and calibrated its global human rights sanctions regime with reference to individuals and entities operating in the Central African Republic (CAR).

In the Southern Africa and Indian Ocean region, South Africa faced an unprecedented energy crisis, which undermined the country’s economic activity contributing to increased political tensions ahead of the 2024 elections. At COP28, South Africa unveiled the JETP Implementation Plan that includes the new areas of renewable energy production, energy efficiency and road to rail that will expand the range of decarbonisation investments by JET Partners. EU supports this partnership as part of the International Partners Group. Zambia saw the worst epidemic of cholera of the past 20 years while Malawi and Mozambique were severely hit by tropical storm Freddy in March. In the run-up to the elections in Zimbabwe on 23 August, the democratic and civic space further contracted. The EU Elections Observation Mission concluded that the elections fell short of international standards and were marked by a curtailment of rights and the lack of a level playing field.

The EU sent an Election Experts Mission to Madagascar where elections took place on 16 November in a tense political environment. Elections in Eswatini were generally peaceful and brought continuity to a regime of absolute monarchy. The EU further deepened its partnership with the region. It held Ministerial meetings with South Africa and Angola and signed with the latter the first ever Sustainable Investments Facilitation Agreement worldwide. It increased its cooperation with Zambia with the signature of a critical raw materials partnership and launched the Global Gateway Lobito corridor project linking Angola, Zambia and DRC. The EU pursued its close engagement with Mozambique to support the country in its fight against armed violence in Cabo Delgado. The EU became a Dialogue Partner of the Indian Ocean Rim Association (IORA) and confirmed its role as security provider in the Indian Ocean with the conclusion of an EU-Seychelles agreement to fight drugs and arms trafficking off the coast of Somalia. The EU continued providing humanitarian aid to several countries in the region, including Madagascar, Malawi, Mozambique and Zimbabwe.

For the Horn of Africa and East Africa region 2023 was an important year. With Kenya, which is a pillar of stability for the region and an important partner, the EU signed an Economic Partnership Agreement (EPA) aiming at enhancing economic, political, and security cooperation. With Somalia, after the election of a new president, the EU agreed on a Joint Operational Roadmap to improve its economy, governance and security. In Ethiopia, the Cessations of Hostilities Agreement of 2022, which ended the conflict in Tigray, continued to be implemented in 2023, paving the way for a progressive normalisation of relations with the EU. Nevertheless, the security situation in another parts of the country, notably in Amhara region, raised concerns. A transitional justice policy framework, including accountability for human rights violations, still needs to be set up before a return to previous levels of Strategic Engagement. On the negative side, in Sudan, a war erupted in April and caused a massive humanitarian crisis. The increased pressure on belligerents via sanctions has not borne fruit, and the regional spill-over effects are increasing.

4.1.2.    Implementation 

EU external action instruments were deployed in 2023 to continue both addressing challenges and tapping into opportunities. Ongoing support for the AU's Agenda 2063 and initiatives like the African Continental Free Trade Area (AfCFTA) underscored the EU's commitment. The Memorandum of Understanding (MoU) on the Lobito Corridor, signed with likeminded partners and partner countries in Sub-Saharan Africa exemplified the Global Gateway's comprehensive vision for sustainable development, regional integration and growth. The MoUs on critical raw materials signed with the Democratic Republic of Congo and Zambia further highlighted the importance attached to building sustainable, value-adding value chains in sectors which are key to the green and digital transition.

Overall, in 2023, the roll-out of the Global Gateway Africa-Europe Investment Package continued to focus on closing the financing gap by mobilising innovative financing, including the private sector, in a ‘Team Europe’ approach. The 2023 Global Gateway Forum exemplified the implementation of Global Gateway in Sub-Saharan Africa, which featured the signature of agreements worth more than EUR 3 billion, including 13 for Sub-Saharan Africa. By the end of 2023, EUR 12 billion were committed for 440 specific projects in Sub-Saharan Africa, including EUR 7.6 billion for country programmes and EUR 4.3 billion for regional programmes. In 2023, the Council also endorsed 39 Global Gateway flagship projects in Africa, for which implementation is under way.

Human Development and Inequalities

In 2023, the Team Europe Initiative on Opportunity-driven Skills and Vocational Education and Training (VET) in Africa Initiative was adopted. This EUR 75 million initiative will orient VET interventions towards decent employment opportunities in selected sectors and value chains under the Global Gateway strategy and other flagship initiatives through a technical assistance facility, regional exchange on public-private-partnerships and a competitive funding mechanism to finance regional and multi-country VET initiatives.

In line with the Youth Action Plan in EU External Action, the Africa-Europe Youth Academy will provide opportunities to young leaders in their respective fields and communities to connect, exchange, improve their leadership skills and create a network of change-makers. A EUR 30 million action ‘Africa-Europe Cultural Cooperation and Promotion of inter-cultural dialogue and cultural diversity’ was also adopted in 2023 and will strengthen EU-Africa and intra-Africa regional and multi- country cultural co-creation and cooperation between artists, creators and cultural professionals.

In Somalia, The Education Access and Quality Improvement Programme impacted 100 000 learners by enhancing learning environments, providing supplies, scholarships, and teacher training. This has led to the notable progress in education system strengthening, including recruitment of 2 600 teachers with plans for an additional 3 000 in 2024. In Madagascar, the EU-supported platforms like ‘Jeunes & engagés’ provided a voice and leadership training for youth, fostering their active participation in society.

Likewise in Mozambique, the EU became one of the largest supporters of the Education sector, initiating its contribution to the Education Support Fund, FASE (EUR 50 million), benefitting more than 8.5 million young Mozambican girls and boys and 100 000 teachers a year, through access to quality education and achieving learning outcomes.

In the framework of the Global Gateway health package the action ‘Strengthening One Health surveillance, early detection and prevention of emerging zoonotic diseases in Africa’ was adopted in 2023 (EUR 30 million). Alongside this action, part three of the Regional dimension and management of the Team Europe Initiative (TEI) on Manufacturing and Access to Vaccines, Medicines and Health Technologies in Africa was adopted (EUR 50 million), a TEI on Sexual and Reproductive Health and Rights in Sub-Saharan Africa was launched in December 2022, and the action on Improved access to Innovative and life-saving commodities for sexual and reproductive health in Africa (EUR 20 million) was launched in 2023.

In East Africa, the European Commission is supporting programmes in the Health Sector. For instance in Burundi the Programme d’Appui de la Santé supported with EUR 55 million for over 900 health centres, improving service quality and governance. In Zimbabwe, the EU advocated for increased domestic financing in health care, leading to improved primary health care services through the Health Resilience Fund, as well as an increase in village health workers for 5.4 million people providing various health services, resulting in a 4 % increase in access to quality primary health care services.

Green Deal

With the Team Europe Iniative (TEI) on Adaptation and Resilience in Africa, the EU displayed its commitment to respond to the request for funding for particularly vulnerable countries hit hard by climate disasters. To that end, two programmes were launched aiming at minimising losses and damage through services, applications and data to support disaster risk financing and transfer. They also target the strengthening of capacities for African partners to access meteorological and climate satellite data and to deliver adequate information, in particular for early warning systems.

Several milestones were reached, contributing to the implementation of the Africa-EU Green Energy Initiative TEI. In Zambia, a Financing Agreement was signed with Zambian authorities to start work on the rehabilitation of the Kariba Dam.

The Naturafrica programme (EUR 160 million) is at the core of the EU efforts in the biodiversity sector in Africa through an innovative, people-centred approach. It identifies key landscapes for conservation and development where the EU will focus its support to create jobs, improve security and sustainable livelihoods, while preserving the ecosystems and wildlife that are vital to all. Efforts in 2023 focused on signing two simplified financing agreements with the West African Economic and Monetary Union (UEMOA) and the Southern African Development Community (SADC).

The first two regional ocean programmes in Sub-Saharan Africa were adopted covering 13 countries in West Africa (West Africa Sustainable Ocean Programme, EUR 59 million) and three in Southern Africa (Blue Benguela Current Programme, EUR 11 million).

At the regional level, the pressures on water resources and water quality of the basins prompted action, notably in the Lake Tanganyika basin. A successor to the Lake Tanganyika Water Management was adopted, the TAKIWAMA project, to continue the preservation effort around the whole basin.

In 2023, a new TEI was also launched to support investment in the energy transition and decarbonisation of Mauritania's economy by developing its renewable hydrogen industries. In East and Central African, the Commission implemented projects in Cameroon and the Republic of Congo. In Southern African, a Global Gateway Flagship in Lesotho is focusing on the implementation of measures to tackle soil erosion and restore land and water resources, while a Roadmap for the strategic partnership on renewable hydrogen and CRM value chains has identified concrete actions in Namibia.

Sustainable Growth and Jobs

In 2023 engagement with the public and private sector to build economies which are more inclusive, sustainable, and dynamic has been pursued through policy alignment and the promotion of efficient regulations in the framework of several regional programmes. The TEI ‘Investing in Young Businesses in Africa’, launched in three countries in 2023 (in addition to two in 2022), jointly developed with 10 EU Member States, aims to tackle some of the main challenges faced by the micro-, small, and medium-sized enterprises (MSMEs) and entrepreneurial ecosystems. Also, the contribution to the Alliance for Financial Inclusion through the Women Economic Empowerment and Financial Inclusion project (WEEFI Africa) adopted in 2023 for a total of EUR 27 million aims at fostering economic stability, promoting gender equality, and stimulating youth engagement and combating primary issues hindering financial inclusion in Sub-Saharan Africa.

A special attention has been given to the promotion of business-to-business and business-to-governments practices as the development of a EU-Africa Business Forum (EABF) permanent structure started in 2023 with the signature of the contract (EUR 15 million). The EABF permanent structure will be instrumental to organise in-country business fora and the continental EU-Africa Business Fora back-to-back with the EU-AU Summits in 2025 and 2028. The promotion of circular economy through the adoption of the ‘Switch to Circular Economy Programme in Eastern and Southern Africa’ (EUR 40 million) will promote sound environmental-friendly policies and practices across governments and businesses in 10 different Countries. The BlueInvest Africa initiative financed by the European Maritime, Fisheries and Aquaculture Fund, will continue to support the innovation and creativity of African entreprises active in the blue economy by organising match-making with investors.

Concerning economic integration, the continued support to the implementation of the African Continental Free Trade Area (AfCFTA) has ensured the recognised position of the EU as a strategic partner for Africa. In particular the operationalisation of the AfCFTA Technical Assistance Facility, implemented in 2023, is a success story for coordinated and effective action of the EU and its Member States.

In West Africa, the European Commission adopted actions presented by financial institutions aiming at leveraging additional funding notably for operations, for example in water adduction and sanitation in Benin, renewable energy in Cabo Verde, green agricultural value chains in Côte d’Ivoire, Liberia and Senegal, urban transport to Senegal, and road infrastructure / strategic corridors in Guinea Bissau. In addition, loans have been awarded to financial intermediaries in Mauritania to support small and medium-sized enterprises with a focus on youth employment and gender equality.

In Uganda, the EU has continued the successful implementation of the access to finance and private sector development portfolio. Business Forums have been organised with Tanzania, Botswana, Namibia and Angola.

In Southern Africa and the Indian Ocean significant progress has been made over the past year, for example in the TEI ‘Investing in Young Businesses in Africa’ (Comoros), the renovation and extension of the Mauritius airport and in the implementation phase of the three private sector support programmes financed under the European Development Fund in Madagascar. In Seychelles, the EU's significant intervention through the Port Victoria Extension and Rehabilitation project, in collaboration with the European Investment Bank (EIB) and the Agence Française de Développement (AFD), aims to enhance the capacity and efficiency of the commercial port within Port Victoria. This project is pivotal for the EU's Global Gateways strategy in the West Indian Ocean Region, with the objective of fostering socio-economic growth in Seychelles.

Meanwhile, in Madagascar, various sectors including transport, energy, and private sector development have seen notable advances. Infrastructure projects like the rehabilitation and modernisation of roads RN6, RN13, and RNT12A are underway, contributing to improved connectivity. In addition, efforts in the energy sector with projects like ‘Angovo’ for rural electrification highlight the EU's commitment to sustainable development. Moreover, support for the private sector through initiatives like CLIM-INVEST and INCUBOOST, along with trade facilitation programmes, demonstrate the EU's multifaceted approach to fostering economic growth and social development in Madagascar.

In the margins of the PGII event at the G20 in India in September 2023, the EU and the US released a Joint Statement teaming up to support the development of the Lobito Corridor, a critical economic corridor stretching from Angola’s Port of Lobito into the DRC and Zambia. Joint EU-US support will include infrastructure investment, soft measures for trade and transit facilitation, and investments in related sectors along the corridor (agriculture value chains, energy, transport/logistics, and TVET) in Angola, DRC and Zambia. During the Global Gateway Forum in October 2023, the EU and the US signed - together with Angola, DRC, Zambia, the African Development Bank (AfDB) and the Africa Finance Corporation (AFC) - a Memorandum of Understanding (MoU) to define the roles and objectives for the Corridor’s expansion, across multiple sectors and partners. The overall objective is to unlock the enormous potential of the region, enhance export possibilities for Angola, DRC and Zambia, and create local value added and jobs.

Digitalisation, Science, Technology, and Innovation

In the digital sector the D4D Hub is further strengthening the coordinated partnership between European and the African actors and ensuring the promotion of European human-centric values and standards. Several programmes have been launched in the frame of regional TEI ‘Digital economy and society in Africa’ aiming at establishing conducive regulations and promote regional convergence for affordable, secure, reliable and high-speed connectivity infrastructure and services, notably for the research and education networks. 

The EU’s digital cooperation entered a new phase with four new major initiatives launched over the year on digital connectivity, digital economy / TVET, digital governance and digital democracy in Kenya. Further support was given to the digital transformation in Botswana as well as to the enhancement of governance and the enabling environment in the ICT Sector in Zambia.

Migration and Forced Displacement

On migration management the priority has been to protect and assist the voluntary return and the reintegration of migrants along the Atlantic/Western Mediterranean and the Central Mediterranean routes. Other priorities of 2023 included the continental and regional migration dialogues (EUR 22 million contract with the International Centre for Migration Policy Development (ICMPD)), improving migration policies and fighting migrant smuggling in the Horn of Africa (EUR 40 million Better Migration Management programme contracted with GIZ).

On forced displacement the regional programme focused in 2023 on protecting, assisting and facilitating durable solutions for Burundian refugees including both support for their return to Burundi and assistance in neighbouring countries hosting them. Ten contracts were signed for a total amount of EUR 40 million. In addition two new actions were adopted as part of the 2023 Annual Action Plan (AAP) to support the integration of forcibly displaced populations in urban settings and to improve data gathering and research on both forced displacements and migratory flows.

The Flexible mechanism for migration financed initiatives in six countries to support either the outcome of EU migration dialogue with those countries or to encourage the adoption and implementation of appropriate migration management and forced displacement policies. Initiatives were approved in Mauritania, Kenya, Uganda, South Sudan/Chad and South Africa.

In Uganda, new projects have been concluded with funding from regional and thematic financial programmes. This includes the ‘EU Flexible Mechanism for Forced Displacement and Migration in Uganda’ and the ‘EU Regional action to provide durable solutions for the Burundian refugee crisis – Uganda Component’. The new project pipeline has led to an important expansion of the refugee response portfolio by including new areas of work such as support to local authorities/urban refugees, access to employment and basic services, and environmental degradation

Governance, Peace and Security (and conflict prevention)

On Governance, the priority of the regional programme was strengthening and harmonising African Union, regional organisations, and civil society organisations’ electoral support capacities (EUR 10 million). In addition, the EU supported the implementation of the African Union Transitional Justice Roadmap (EUR 5 million).

On peace and security, the regional programme supported the International Conference for the Great Lakes Region efforts to manage conflict in the Great Lakes Region including a better governance of mineral resources (EUR 10 million). A second priority was to combat transnational threats. These included new actions being adopted in the 2023 AAP to combat illicit financial flows (EUR 40 million) and maritime security (EUR 45 million), and the launch of the programme to support to the Académie Internationale pour la Lutte Contre le Terrorime (EUR 10 million). The third and final priority was to prevent and mitigate the impact of conflict on communities living in borderland area. A ‘safe the seas for Africa’ programme (EUR 45 million) covering the Western Indian Ocean and the Gulf of Guinea will enhance maritime security of the coasts of Africa.

In West Africa, several actions were adopted targeting economic and political governance and rule of law, for example in Guinea-Bissau, Liberia, Ivory Coast, Ghana and Nigeria. The EU applied a humanitarian-development-peace nexus approach to its engagement towards partner countries particularly in the Sahel and the coastal countries.

In Somalia, the EU continues to reinforce institutional capacities while building up operational capacities of the Somali Security Forces, paying monthly salaries to more than 2 400 Federal Member State police officers across the country. Equipment and infrastructure works were also delivered: six police stations including furniture, four trucks for the Darwish forces, IT equipment for the implementation of an Asset Management System for Banadir, and a CID HQ building and its holding facility in Mogadishu.

In Lesotho the EU trains police officers on human rights and the first-ever child-friendly courts in Lesotho to ensure better access to justice for children were created.

A Youth Sounding Board has been implemented in DRC to promote EU dialogue and youth engagement on the common values and interests of the EU and the DRC.

Food security and nutrition

Concerning Agri-food systems, at regional level the livestock-pastoralism ‘package’ has been completed: the West Africa pastoralism programme (2022 AAP – EUR 60 million) has been complemented by a similar programme in the Horn of Africa (EUR 40 million) and a transversal action of EUR 8 million on the eradication of PPR (Peste des petits ruminants).

The EU effort on promoting the agro-ecological transitions of food systems in Sub-Saharan Africa has been materialised into the EUR 150 million Desira+ programme. It will allow boosting investments to better understand and use ecological processes, to develop agro-ecological technologies, to stimulate and bring innovations to scale, to mobilise and strengthen the capacities of national research, farmers’ organisations, NGOs and the private sector, and to improve enabling policies for agro-ecology and sustainable food systems. Furthermore two contracts were signed in 2023 under the Great Green Wall Initiative (EUR 13 million) to support the development of a mosaic of green and productive landscapes across 18 countries in the Sahel and the Horn of Africa.

The European Commission supports food security and nutrition initiatives in Kenya, Cameroon and Zambia. For instance, in Zambia, under the Agriculture Value Chain Facility, an agreement with a EUR 20 million investment, an initiative enabling loans for small and medium-sized businesses in the agriculture and aquaculture sectors, was signed with First Capital Bank Zambia as the second local financial intermediary bank through an additional EUR 2.6 million grant from the EU.

The Pan African Network for Economic Analysis of Policies (PANAP)( 79 ) established in cooperation with the Joint Research Centre, the African Union Commission - Agriculture, Rural Development, Blue Economy, and Sustainable Environment (ARBE), and the Forum for Agricultural Research in Africa (FARA) in 2019. The network, established under the aegis of the AU-EU Agriculture Ministerial Conference, is conducting research on economic analysis of policies focusing on Africa’s Food Systems and that supports its sustainable transition.

Case study on a Global Gateway flagship

4.1.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

East Africa

The conflict that erupted on 15 April 2023 in Sudan has led to a major regional crisis in East Africa. More than half of the population, about 25 million people, needed humanitarian aid and protection. An estimated 19 million children were out of school in 2023. Sudan continued to be the largest displacement crisis globally. The country also recorded the highest rate of child malnutrition globally, with 17.7 million people being acutely food insecure and about five million classified in emergency (IPC Phase 4) with the potential to slip into pockets of IPC 5 (Catastrophe/Famine). By December 2023, over nine million people were internally displaced, and Sudan hosted about one million refugees, while over an additional 1.6 million people fled violence to neighbouring countries.

Consequently, the European Commission scaled up its response in the entire region, allocating a total of EUR 37.5 million to neighbouring countries on top of the EUR 128 million funding for the crisis in Sudan. The European Commission also helped to improve logistics in Eastern Chad to allow humanitarian partners to scale up their response and mobilised other donors, including through a pledging conference on 19 June 2023, where Team Europe pledged a third of the USD 1.5 billion total pledges. A high-level event was afterwards co-hosted by the EU in New-York during the UN General Assembly (UNGA) week.

The overall humanitarian situation in the Horn of Africa region has continued to be affected by conflicts, extreme climatic events including due to El Niño, by epidemics and economic shocks over the course of 2023 with close to 35 million people estimated in need of assistance in Ethiopia, Kenya and Somalia.

In Ethiopia, despite the 2022 Cessation of Hostilities Agreement with a ceasefire to the northern conflict, the legacy of the conflict continued. Concerns increased in 2023 about the conflicts in Amhara and Oromia, driving up humanitarian and protection needs, and violations of international humanitarian law (IHL). After the devastating and prolonged drought in southern and southeastern Ethiopia, most of the affected regions were hit by widespread flooding in the last quarter of 2023, affecting 1.5 million people. At the end of 2023, the estimated number of refugees hosted in Ethiopia was more than 963 000. In 2023, the EU mobilised EUR 84.8 million in total over the year to provide life-saving relief to vulnerable people. The EU continued with its advocacy efforts and devoted considerable efforts to improve accountability of aid.

Kenya continued to host over 676 000 refugees and asylum seekers. The end of the year budget for Kenya was EUR 16.2 million, including EUR 3 million in response to the drought affecting the Arid and Semi-Arid Lands (ASALs).

In 2023, Somalia was very close to a situation of famine triggered by a devastating drought, the result of five consecutive failed rainy seasons, which caused the death of 43 000 people. Only a few months later, equally historic heavy Deyr rains and related massive flooding severely hit the country. They affected about 2.5 million people. In 2023, the country also witnessed overall historic levels of internal displacement with 2.9 million people displaced by climatic shocks and conflict. The 2023 final humanitarian allocation amounted to EUR 84.4 million.

In South Sudan the political and security situation remained extremely fragile. Overall, the humanitarian situation is disastrous. The country has the highest proportion of its population in need of humanitarian assistance (72 %, 9 million people in the United Nation Humanitarian Needs and Response Plan for 2024), and the highest proportion of its population suffering from severe food insecurity (65 %, 8 million people). More than four million people are displaced. The conflict in Sudan is generating an unprecedented wave of returns and arrivals, with over 480 000 people having crossed the border in 2023. The EU mobilised EUR 91.7 million for humanitarian actions, including EUR 10.2 million in response to the impact in South Sudan of the crisis in Sudan.

Uganda hosts the largest refugee population in Africa and the sixth largest in the world with close to 1.6 million refugees fleeing conflicts mainly from South Sudan and the Democratic Republic of the Congo. The EU’s support is crucial to provide life-saving humanitarian assistance to both refugees and host communities. In Uganda the EU supports the roll out of the Comprehensive Refugee Response Framework( 81 ). The EU allocated a total of EUR 35.2 million in humanitarian aid in 2023.

Humanitarian needs remained high in Burundi mainly linked to structural problems, high poverty rates and lack of access to basic social services. 1.6 million people out of a population of 13 million needed humanitarian assistance. In 2023, the European Commission provided over EUR 9 million in humanitarian funding.

West and Central Africa

The Sahel countries (Burkina Faso, Mauritania, Mali, Chad and Niger) are among the poorest and the most fragile in the world facing recurrent emergencies driven by conflict, the food and nutrition crisis, epidemics and the effects of climate change. Various decisions made by the transition authorities in Central Sahel have significantly changed the conditions for aid delivery. In 2023, the EU responded to emergency humanitarian needs of the most vulnerable populations in these countries, mobilising EUR 181.4 million to support multisectoral humanitarian interventions, benefiting about 6.7 million vulnerable people. Moreover, EU aid supported humanitarian access to hard-to-reach areas through humanitarian air services and humanitarian civil-military coordination. In 2023, the EU also funded the response to the outbreak of the Sudan crisis in the East of Chad.

In north-east Nigeria, the situation remained particularly complex, with an estimate of 8.3 million people in need, including more than two million forcibly displaced and considerable food security risks for people unable to access assistance (estimated at one million). Access to those in need remained an issue. More than 24.8 million people are in IPC3+. In 2023, the European Commission provided over EUR 47.4 million in humanitarian funding.

The Democratic Republic of the Congo has faced a further deterioration of its humanitarian crisis due to conflict in the east of the country but also in Mai-Ndombe province close to Kinshasa. This continued to cause large-scale displacement (6.9 million internally displaced people in total) and serious protection concerns including very high level of gender-based violence. Around 26.4 million people were acutely food insecure. The EU humanitarian funding for the DRC reached EUR 100 million in 2023. The EU also implemented EU Humanitarian Aid Flights to transport humanitarian staff and goods and organised two Humanitarian Air Bridges.

The Central African Republic has been affected by conflict and a resulting humanitarian crisis for more than 10 years now. In 2023, the number of people in need had increased, reaching 3.4 million people. This context also remains dangerous for humanitarian partners to operate in, due to the continuous conflict and to the opportunistic criminal behaviour of non-State armed groups (NSAGs). In 2023, the EU provided multisector assistance for a total amount of EUR 24 million.

Nine out of ten regions of Cameroon continue to be impacted by three complex humanitarian crises. In 2023, 4.7 million people needed emergency assistance. Cameroon had more than one million internally displaced people, and close to half a million refugees. The EU mobilised a total of EUR 21.2 million.

Southern Africa and Indian Ocean

The Southern Africa and Indian Ocean region is prone to more frequent and intense natural disasters due to climate change and human-induced disasters caused by conflict and violence, resulting in loss of lives and destruction of livelihood assets, leading to population displacement and millions of people in need of assistance. In Mozambique a total of 2.2 million people are in need of humanitarian assistance and protection. In 2023, the EU allocated over EUR 26 million to respond to the Cabo Delgado crisis. In Madagascar, around 2.3 million people urgently needed humanitarian assistance, following devastating cyclones and droughts since 2020. In 2023, the EU allocated over EUR 18 million for humanitarian aid in Madagascar. In Zimbabwe, nearly 4.25 million people were estimated to be acutely food insecure. In 2023, the EU allocated EUR 8.5 million for humanitarian aid in Zimbabwe.

In 2023, the EU allocated EUR 72 million to respond to multiple needs in the region, including disaster preparedness and responding to epidemics, notably cholera outbreaks in Malawi and Zimbabwe. This funding helped address the acute levels of food insecurity, including additional support to mitigate the impact of Russia’s war of aggression against Ukraine. It also included support provided in response to the consequences of the 2023 cyclonic season which hit Madagascar, Malawi and Mozambique requiring additional assistance to support their national responses complemented by additional transport means through the UN’s Humanitarian Air Service.

4.1.4.    Crisis response and preparedness

With 11 new crisis response actions related to Sub-Saharan Africa launched in 2023 under the Rapid Response Pillar of the NDICI- Global Europe, the EU responded to the numerous crises in the region.

Following the outbreak of war in Sudan in April, the EU has adopted two new actions focusing on efforts to prevent violence against civilians as well as on strengthening civil society in its work on mediation, conflict resolution and countering disinformation. Furthermore, support was provided in both Chad and Egypt to address consequences related to the arrival of people fleeing the fighting in Sudan. During the year, the EU also launched a climate-sensitive stabilisation action in Somalia as well as support to accountability and inclusive conflict resolution and reconciliation in Ethiopia. Both in Central African Republic and in eastern Democratic Republic of Congo EU actions in support of peace efforts continued, as did support to countries in coastal West Africa to respond to the risk of spillover of the conflict in the Sahel. In Nigeria a crisis response action addresses efforts to promote peace and stability, with an emphasis on the Niger Delta, by mitigating conflicts over natural resources and in Mozambique efforts to stabilise the northern region of Capo Delgado through support to strengthen the criminal justice chain was launched.

In 2023, the EU supported peace and security in sub-Saharan Africa also by five civilian Common Security and Defence Policy (CSDP) Missions and two EU Special Representatives.

The European Union CSDP Mission in Mali (EUCAP Sahel Mali), launched in 2014 and extended to January 2025, continued to support the Malian internal security forces. The Regional Advisory and Coordination Cell (RACC), embedded within EUCAP SAHEL Mali, continued to improve coordination between the G5 Sahel structures and countries to enhance regional cooperation and operational capabilities in the field of defence and security.

The EU CSDP Mission in Niger (EUCAP Sahel Niger) supported the capacity of the Nigerien security forces to fight terrorism and organised crime. The implementation of the mandate was negatively impacted by the coup d’état in July 2023.

The European Union Advisory Mission to Central African Republic (EUAM RCA) continued to support the establishment of rule-based governance, increase the capacities within the Ministry for Interior and Public Security, and foster a sustainable transformation of the Central African Republic's Internal Security Forces and their operational effective functioning and deployment.

In 2023, the EU Capacity Building Mission in Somalia (EUCAP Somalia) continued its work to enhance Somali maritime civilian law enforcement. In particular, it worked to reinforce the Somali capacity to carry out fisheries’ inspections and enforcement, ensure maritime search and rescue, counter smuggling, fight piracy and police the coastal zone on land and at sea. It pursued these objectives by supporting national authorities in developing the necessary legislation and setting up judicial authorities beyond providing the necessary mentoring, advice, training, and equipment to Somali maritime civilian law enforcement entities.

In 2023, the EU established and launched a new Mission named ‘European Union Security and Defence Initiative in support of West African countries of the Gulf of Guinea’, to support the capacities of the security forces of Benin, Côte d’Ivoire, Ghana and Togo to contain terrorist armed groups. The Initiative has a civilian and a military pillar.

The EU Special Representative (EUSR) for the Sahel’s mandate, extended until 31 August 2024, contributed actively to regional and international efforts to achieve lasting peace, security, stability and sustainable development in the region. Furthermore, the EUSR aimed to enhance the quality, impact, and visibility of the EU’s multi-faceted engagement in the Sahel in an integrated way.

The EUSR for the Horn of Africa actively contributed to regional and international efforts to achieve peaceful coexistence and lasting peace, security, and development within and among the countries in the region. The EUSR also engaged with the countries of the Red Sea and Nile Basin as well as with relevant regional or international entities as appropriate. The mandate of the EUSR was extended until 31 August 2024.

The iTrace IV action contributed to the prevention of diversion and illicit trafficking of conventional arms and their ammunition by documenting and tracing those arms and ammunition in Somalia and the Sahel region.

The EU increased support to biosecurity in the region through the EU Chemical, Biological, Radiological and Nuclear (CBRN) Centres of Excellence initiative, with actions focused on enhanced early detection of and preparedness for emerging viral diseases, strengthened epidemiology response and enhanced capacity of public health laboratories to produce reliable test results and establish quality management systems.

4.2.    Asia and the Pacific

4.2.1.    East Asia and South Asia

4.2.1.1.    Introduction (policy developments)

Indonesia took over the ASEAN Chair in 2023, leading to an intensification of dialogue with the country. The EU-ASEAN Plan of Action to Implement the Strategic Partnership (2023-2027) was taken forward, with the EU High Representative for Foreign Affairs and Security Policy/Vice-President (HRVP) of the European Commission Josep Borrell reviewing progress at the EU-ASEAN Post-Ministerial Conference in Jakarta in July, where he also took part in the ASEAN Regional Forum. At the ASEAN Indo-Pacific Forum in September, the EU presented 22 Global Gateway Team Europe projects contributing to green infrastructure and resilient supply chains, sustainable and innovative financing, and digital transformation in ASEAN.

Free trade agreement negotiations were accelerated with Indonesia and resumed with Thailand. In Manila in July, the President of the Commission also announced the intention to work towards resuming negotiations with the Philippines. The EU commenced negotiations for a digital trade agreement with Singapore to enhance legal certainty for end-to-end digital trade. The EU, together with UK, leads the work on this Parnetship on behalf of the International Partners Group.

A major milestone in the European Union's joint efforts to fight climate change was reached in 2023 at COP28, with the launch of the Resource Mobilisation Plan for Viet Nam, concluded in the framework of the Just Energy Transition Partnership (JETP) with the International Partners Group.

The EU worked closely with Indonesia as the ASEAN Chair to address the situation in Myanmar/Burma. Following the 2021 military coup, the Council continued to extend its targeted sanctions on those responsible for the coup and for the suppression of democracy, as well as against entities which provided financial and other support to the military regime. The EU continued to support ASEAN’s Five-Point Consensus to try to address the Myanmar crisis, advocated for a global arms embargo and deepened its engagement with the National Unity Government and other anti-coup stakeholders.

The EU continued using its presence in Afghanistan to reach out to the Afghan people and to ensure a basic communication channel with the Taliban de-facto authorities in Kabul. Following a series of edicts - issued towards the end of 2022 and at the beginning of 2023 - further limiting women and girls’ social and economic rights, the EU decided to pause the signature of new contracts with aid providers and launched a review of basic needs and humanitarian aid. In order to continue the delivery of assistance in line with international commitments a set of guidelines was devised with an overarching ‘for women by women’ principle. This allowed the EU to resume operations in September 2023.

Despite a growing political and economic uncertainty in Pakistan, with overdue elections, a care-taker government and an economy in need of structural reforms, the EU continued to engage with a first comprehensive dialogue on migration and mobility held in Islamabad, and a strengthened cooperation on migration issues.

The 29th EU-Japan Summit on 13 July 2023 in Brussels reaffirmed the closeness and strength of the EU-Japan relationship. The discussions on relations and global challenges confirmed a strong convergence on economic security and the green and digital transitions. Agreement was achieved on the creation of a Strategic Dialogue at foreign ministers’ level and to further develop the security partnership.

After a break of almost four years, the European Commission hosted the 8th Development Dialogue between the European Union and the Republic of Korea (RoK), which took place in Brussels in February 2023. As like-minded partners, the EU and RoK exchanged on the state-of-play of their development cooperation policies and priorities, such as the EU Global Gateway strategy and respective Indo-Pacific strategies. Concrete areas for potential cooperation in third countries were explored, notably on the basis of an ongoing mapping exercise made in collaboration with EU delegations and Korean missions in the ASEAN region.

In Mongolia, 2023 saw sustained discussions initiated by the donor community regarding the energy policy and the share of renewable energy in a carbon-based economy, which was at the centre of a corruption scandal but also instrumental in the strengthening of economic recovery. Otherwise, the topic of Critical Raw Materials (CRM) did not progress except for an investment contract with France concerning uranium, which is still to be finalised.

The Council Conclusions of 30 June 2023 reaffirmed the EU’s multifaceted policy approach towards China, where it is simultaneously a partner, a competitor and a systemic rival, and reiterated the importance of cooperating with China on global challenges and to promote our interests, in particular in the areas of climate, sustainable development, health, food security, debt relief and disaster reduction.

At the Global Gateway Forum in October 2023, President of the European Commission Ursula von der Leyen, together with Bangladesh Prime Minister Sheikh Hasina, launched the negotiations on a new Partnership and Cooperation Agreement to expand and develop the relationship between the EU and Bangladesh. Celebrating 50 years of partnership, the EU and Bangladesh reaffirmed their commitment to further strengthen their strategic engagements. The European External Action Service led a monitoring mission in November in the framework of EU’s enhanced engagement under the Everything But Arms (EBA) scheme, focusing on progress on the protection of human rights, including labour rights, in the country.

The EU supported Sri Lanka in its process of economic recovery and the implementation of reforms for the benefit of the people of Sri Lanka. The EU and Sri Lanka enjoyed good cooperation on maritime security under the EU-funded CRIMARIO (Critical Maritime Routes in the Indian Ocean) programme.

EU-India relations got a boost during India’s G20 Presidency, with a number of high level visits to the country. The Leaders met in the margins of the G20 Summit in September, HRVP visited New Delhi and took part in the Raisina Dialogue, and many Commissioners travelled to different events. The first meeting of the newly created EU-India Trade and Technology Council took place on 16 May, addressing key trade, energy and technology challenges and further strengthening cooperation in these areas. The EU and India also advanced in their negotiations for an EU-India Free Trade Agreement and talks on an Investment Protection Agreement as well as an Agreement on Geographical Indications.

4.2.1.2.    Implementation

Human development and inequalities

In Cambodia, an EUR 40 million programme contributing to the two Team Europe Initiatives emphasising gender and governance perspectives in education, was approved in 2023 to reinforce technical and STEM education. The new programme already helped secure an additional grant of USD 10 million from the Global Partnership for Education (GPE) to Cambodia, mobilised in partnership with Japan, reinforcing the EU’s cooperation with the GPE and the UN. Cambodia hosted the second edition of the European Higher Education Fair at the EU Delegation premises, with the participation of seven EU Member States, which saw the participation of 350 young Cambodian students.

Throughout 2023, the European Union's assistance for basic needs and livelihoods in Afghanistan was suspended, due to restrictions imposed by the Taliban’s regime on women's employment within NGOs and later, UN agencies. This pause in operations persisted until a thorough six-month evaluation of the ‘for women by women’ principled approach was completed, ensuring the active participation of Afghan women and girls in the aid process. The EU maintained vigilant oversight to uphold non-discrimination principles during this time. Following this period, the EU restarted its activities, strictly adhering to the principled approach, thereby finalising the contracting for the envisaged 2022 aid projects. Concurrently, in November 2023, the EU approved a new financial package to continue support for the basic needs of the Afghan population, with a particular focus on women, the vulnerable, internally displaced persons, and returnees.

This renewed commitment will enhance access to essential services, including health care (with an emphasis on mental health and substance abuse treatment), nutrition, water, sanitation, hygiene, and education. In addition, the EU will provide livelihood support with a special emphasis on fostering women's economic independence, aiming to alleviate poverty through community-led income generation, business assistance services, and improvements in food security, agriculture, local value chains, market access, and microfinance.

Nearly three years after the military coup, the EU remains committed to support the people of Myanmar, while the nation plunges into a deeper political, socio-economic, and humanitarian crisis. In 2023, the EU adopted a new EUR 55 million package, which includes two programmes aimed at addressing human development and inequalities, namely the EUR 23 million programme for ‘Sustainable Livelihoods and Inclusive Growth’ and a EUR 10 million programme entitled ‘Gender based violence response, mitigation and prevention in Myanmar’. Two EU education programmes started their activities in 2023. The EUR 4.7 million ‘EU Mobility Programme for Myanmar (EMPM)’, implemented by three European scholarship agencies (DAAD, Campus France and Nuffic) provides 50 scholarships in ASEAN universities, while the EUR 15 million programme ‘Quality for Basic Education Pathways for Children (QBEP4C)’, co-funded by the EU, Finland and DFAT and implemented by UNICEF, delivers a supplementary basic education programme to overcome learning losses caused by the pandemic and the political crisis, and facilitates return to formal schooling.

In the face of the deepening economic crisis in Myanmar, in 2023 support to livelihoods has been more relevant than ever. EUR 23 million were dedicated to support ‘Sustainable Livelihoods and Inclusive Growth’, while implementation of the multi-donor ‘ Livelihoods and Food Security Fund (LIFT) ’ continued.

In December 2023, the European Union, in collaboration with the UNDP and UNICEF, initiated the Youth-Led Environmental Learning and Leadership (YELL) programme in Malaysia to engage youth in environmental and climate action, aligning with the EU's Deforestation Regulation's impact in the region. In addition, the EU advanced its Human Rights and Democracy Country Strategy, committing EUR 600 000 through a Contribution Agreement with the International Labour Organisation (ILO) to combat child labour in Sabah's oil palm plantations by enhancing educational and vocational training access. Furthermore, EU support to civil society organisations contributed to the promotion of gender equality, women's empowerment, and LGBTIQ inclusivity, despite a contracting civic space and prevailing conservative attitudes. This funding also bolstered the defence and advancement of the social and economic rights of indigenous populations in Sabah State.

In Viet Nam, support to the rule of law continued under the EU Justice and Legal Empowerment (EU JULE) programme. Results achieved in 2023 included the preparation of a national legal empowerment strategy and the implementation of an awareness raising campaign targeted at vulnerable groups. The project also helped to align domestic laws with international human rights conventions, such as the International Convention on Civil and Political Rights (ICCPR), and to support Viet Nam in preparing the Fourth Periodic Report on the implementation of the ICCPR. The programme also successfully supported 17 initiatives of non-state actors to strengthen legal and judicial access for disadvantaged and vulnerable groups.

The European Union's budget support programme has been instrumental in advancing technical education in Bangladesh. In 2023, this support facilitated the training of over 1 000 TVET teachers in various occupations and technologies, with 200 of them obtaining certification under the National Technical and Vocational Qualification Framework. In addition, the EU budget support programme has played a vital role in advocating and engaging in policy dialogue to emphasize the importance of ensuring an adequate and well-distributed teacher workforce across primary schools. As a result, a total of 55 721 teachers have been recruited and deployed, out of the targeted 61 166 teachers within the duration of the budget support programme.

Green Deal

In October 2023, at the Global Gateway Forum, the EU, the European Investment Bank (EIB) and Bangladesh signed agreements worth EUR 400 million for renewable energy projects contributing to a sustainable green transition of the country’s power sector and to the achievement of its climate mitigation targets. The agreements include an EUR 350 million EU-guaranteed loan from EIB, complemented by a blending support package of EUR 45 million to provide technical assistance and an investment grant. An accompanying Green Energy Transition project worth EUR 12 million (including EUR 7 million co-financing by Germany) aims to work on the policy, legal framework and investment climate to facilitate an inclusive green energy transition. Projects will contribute to boost access to energy and rural development throughout Bangladesh, consisting mainly of utility scale solar photovoltaic and onshore wind projects, and potentially associated battery energy storage systems.

The regional programme SWITCH Asia, covering sustainable consumption and production, entered its third phase in January 2023, and extended eligibility to finance activities in the Middle East and Pacific countries. One component provides policy support through technical advisories and the other provides grants. A call for grants proposals, amounting to EUR 24 million, received over 160 submitted concept notes by the end of 2023.

One year after the endorsement of the Political Declaration in December 2022, the Just Energy Transition Partnership (JETP) for Viet Nam advanced with the formalisation of the Resource Mobilisation Plan (RMP). This development followed the establishment of the JETP secretariat by the Vietnamese Government in August 2023. Throughout the year, a series of high-level policy dialogues and consultative assemblies regarding the JETP Resource Mobilisation Plan were successfully convened.

Within the JETP framework, the Team Europe Energy Transition Facility for Viet Nam Electricity (EVN), amounting to EUR 16.6 million, was contracted with the French Development Agency (AFD). This pioneering financing mechanism will provide technical assistance to EVN, facilitating the preparation and execution of investment projects that are in alignment with Viet Nam's commitments to carbon neutrality and the coal phase-out objectives declared at COP26.

The Comprehensive Investment and Policy Plan ( CIPP ) for Indonesia was published in November 2023, one year after the launch of the Just Energy Transition Partnership (JETP). The CIPP underpins the implementation of the partnership between the Government of Indonesia and the International Partners Group. Within the framework of a ‘Team Europe’ approach, the EU, with the European Investment Bank and its Member States, are the largest pledgers under the JETP, with EUR 3.4 billion committed, mostly in the form of loans accompanied by grants. 

The EU promoted Global Gateway investments through dialogue and outreach, including the organisation of a high-level event during the ASEAN Indo-Pacific Forum, one of the flagship events of Indonesia’s chairmanship of ASEAN during 2023.

Cooperation on environment and climate change remains politically sensitive. Progress has been made in launching and implementing actions on oceans and on circular economy, where the EU enjoys constructive cooperation with the Government.

The rapid growth and economic development of Malaysia, linked to the country’s location alongside the Strait of Malacca, made Malaysia a maritime nation and a gateway to Southeast Asia. Port of Antwerp-Bruges International (PoABI) and Perbadanan Kemajuan Negeri Perak (PKNP), a state development agency, have formed a strategic partnership to enable the establishment and operation of the Lumut Maritime Industrial Cluster (LUMIC) in Perak state. The EU awarded a EUR 1.9 million grant for feasibility studies and a master plan by the two partners, recognising the port’s potential as a logistics and industrial hub for unhindered trade access, including for strategic commodities. PoABI will come forward with an initial investment of between EUR 12 and 20 million.

During the Global Gateway Forum in 2023, the EU and the Philippines signed the Green Economy Programme (see here ), part of the Philippines Team Europe Initiative Green Economy (EUR 466 million) launched in July 2023 by President von der Leyen (see here ). Totalling EUR 60 million, the EU contribution will support the transition towards circular economy, reducing waste and plastic usage, promoting energy efficiency, and deploying renewable energy to address the impacts of the climate crisis. To achieve this, the EU will collaborate with the national government, local government units, and the private sector to promote green investments, bonds, and skills, focusing on greener supply chains and production processes.

Under the Cooperation Facility for Thailand, the EU conducted a study on the impact of the EU deforestation regulation in the country, focusing on rubber.

The EU participated to the International Conference of Climate Resilient Pakistan held in Geneva in January 2023, organised after the 2022 devastating floods. EU support, in a ‘Team Europe’ approach, to the government’s Resilient Recovery, Rehabilitation, and Reconstruction Framework (4RF) of EUR 500 million announced by President of the European Commission von der Leyen at the Geneva Conference has almost doubled to EUR 932 million. In this context, the EU is focusing its support notably on energy, water and resilient rural economic recovery.

In 2023, climate change adaptation was central to several EU projects in Myanmar. The ‘Securing Energy Needs and Transition of Rural areas in Myanmar (SENTRUM)’ programme was signed at the end of 2023, and will increase access to sustainable energy in rural Myanmar by promoting renewable electricity and energy-efficient products for MSMEs and rural households.

In India, the 2023 ‘Green Transformation’ programme (EUR 12.5 million) will support policy dialogue in the EU-India Energy Panel and Joint Working Group on Renewable Energy, the development of an EU–India Green Hydrogen Partnership and promote the uptake of offshore wind in close coordination with EUFIs (EIB, KfW, AFD, others). EU-India sustainable finance cooperation will be strengthened, with pipeline development supported at regional and state level, and with credit lines mobilised through EUFI’s towards green investments (energy efficiency, renewable energy, electric vehicles, green transition, and others). Agro-ecology and natural farming will also be supported.

Team Europe in Mongolia focused its Global Gateway endeavours on environment, climate and energy, where good progress was recorded in 2023. The contribution agreement between EU and EBRD ‘Choir-Sainshand transmission line project’, for the construction of a 220 km double circuit transmission line, was signed in November 2023. The programme ‘ASDIP - Aimag and Soum Centres Green and Resilient Regional Development Investment’, which aims at promoting a transformative model for green territorial development and green urban–rural linkages, combining loans and grants for a total of USD 735 million and involving ADB, EIB, EU and the Government of Mongolia, was signed in December 2023. The Forest Partnership roadmap, previously enshrined in the Memorandum of Understanding (MoU) signed by the Commission President and Mongolian President on the margins of the COP27, was officially endorsed on 3 July 2023, with the ambition to address the protection, restoration and sustainable management and use of Mongolia’s forests.

As the green transition is one of the key areas of EU-China cooperation, the EU-China High-Level Environment and Climate Dialogue was held in July, setting the framework for enhanced cooperation in the fields of emissions trading systems, climate change modelling, adaptation, methane emission reductions, Carbon Border Adjustment Mechanism (CBAM), plastics and clean energy transition. Targeted policy dialogues and programmes also focused on the transition to a circular economy as a priority for cooperation, and the need to address the global demand for illegal wildlife products, pollution control, deforestation and biodiversity protection.

Research cooperation is continuing under the EU’s key funding programme for research and innovation, Horizon Europe, in areas of mutual interests to tackle global challenges through two research flagship initiatives on food, agriculture and biosolutions, and climate change and biodiversity, in line with the ongoing discussions on the Joint Roadmap for the future of EU-China cooperation in science, technology, and innovation (the Roadmap), the Global Approach Strategy, and the ‘de-risking - not de-coupling’ approach presented in  President von der Leyen’s speech  of March 2023 and confirmed by EU Council Conclusions in June 2023. At the same time, cooperation has been restricted in innovation actions, due to persisting imbalances in the science, technology, and innovation cooperation with China and lack of progress on the Roadmap framework conditions related to innovation.

Sustainable growth and jobs

In Myanmar, capacity-building for export of agricultural products continued, despite macro-economic and trade policy challenges, through the ‘ARISE Plus Myanmar’ trade-related assistance programme. The EU continued to strengthen responsible business practices in Myanmar during 2023 and reaffirmed its support to hundreds of thousands of vulnerable women working in the garment sector through the official launch in March of the Multi-stakeholder Alliance for Decent Employment in the Myanmar Apparel industry (‘MADE in Myanmar’), which strives to reach critical industry improvements and protect livelihoods.

As the main partner of Cambodia in the fisheries and aquaculture sectors, the European Union funded programmes contributing to jobs creation, social and economic development as well as food security. Special efforts were dedicated in this sector to meet requirements and controls complying with EU standards, allowing imports from Cambodia to access the European market. Following a possibly positive audit by the European Commission, the adopted measures may allow the EU to lift its red card on Illegal, Unreported and Unregulated (IUU) fishing in the near future.

Digitalisation, science, technology and innovation

For ASEAN, as part of the Sustainable Connectivity TEI, a substantial package of EUR 60 million of support was adopted in April 2023. Three contracts were signed, well ahead of the deadline for contracting at the end of 2024, with first new projects about to start on higher education, civil aviation and intellectual property rights.

As part of the Global Gateway strategy in 2023 in the Philippines, the EU signed a contribution agreement with the European Space Agency to implement the Copernicus programme (see here ), and launched in April, the first earth observation in South-East Asia, the Copernicus Philippines Programme (EUR 10 million) (see here ). The programme supports the development of a National Copernicus Mirror Site (data centre) to be a repository of satellite data for the Philippines.

In 2023, preparation work started for the Philippines Digital Economy Package and the Team Europe Initiative on Digital Connectivity (SSC was approved in October 2023). The package will support digital connectivity to enhance secure and reliable digital connections to expand the Copernicus mirror site, support capacity building for cybersecurity, and policy and regulatory support for 5G roll out. Furthermore, with complementary support through the ASEAN Connectivity TEI, the objective is to expand the Copernicus mirror site to other pilot countries in South-East Asia.

In 2023, work was carried out under the EU-Japan Connectivity Partnership to identify joint connectivity projects in Africa and the Indo-Pacific. This included three connectivity workshops in Tokyo which brought together the EU, EIB, Japanese Ministries and agencies and EU Member States.

Migration and forced displacement

A comprehensive package of support was approved in 2023 to cover migration and forced displacement challenges in the region. This includes support to displaced Rohingya in Bangladesh, vulnerable groups and labour migration in South-East Asia. New programmes to support legal pathways for migration (‘Talent Partnerships’) with Bangladesh and Pakistan were also created.

The EU’s basic needs assistance in Afghanistan contributes to tackling the root causes of migration. In the context of Pakistan’s decision in September 2023 to deport up to 1.7 million (undocumented) Afghans as well as an increased forcible return from Iran, the assistance delivered included addressing the challenges of forced displacement due to high numbers of Afghans arriving in/returning to extremely fragile host communities with very limited access to basic services and livelihood opportunities. EU funded projects provided for enhanced protection spaces, access to gender-responsive health services as well as education and livelihood opportunities in host communities and areas of return. The EU also increased the EU contribution to the Regional Team Europe Initiative for Afghan displacement through which the EU strives to provide durable solutions for displaced Afghans and their host communities in Afghanistan and neighbouring countries, to support better migration management and the fight against trafficking in human beings and smuggling of migrants.

Governance, peace and security (and conflict prevention)

In the Philippines over the last 20 years the EU has been one the biggest foreign development partners providing support to Mindanao and the peace process. The EU under the Partnership for Peace and Development in Mindanao programme adopted in 2023 is supporting with EUR 27 million good governance, support to the peace process to ensure commitments in the peace agreement are implemented, and support to human security by reinforcing the humanitarian-development-peace nexus approach to increase resilience and address horizontal conflict drivers and other sources of instability including human-made and natural disasters.

In Myanmar, EUR 20 million were committed for the programme ‘Support to Peace, Democratisation and Resilience in Myanmar’. In addition, the EU supported multi-donor ‘ Joint Peace Fund (JPF) ’ started the implementation of its new strategy and project pipeline, demonstrating its continued value in terms of coordination, scale and responsiveness to shifting conflict dynamics. In 2023 JPF conflict management mechanisms and partners recorded and responded to hundreds of incidents such as air strikes, arbitrary arrests, unlawful detention and torture, and other protection-related issues.

Empowering civil society continued to be at the heart of the EU’s development actions in Myanmar during 2023. Through granting and sub-granting schemes the EU provided support to enhance the capacity and autonomy of local CSOs to provide services. Finally, the humanitarian-development-peace (HDP) nexus remained the key guiding principle of EU programming in Myanmar. In 2023, the EU funded programme ‘ Nexus Response Mechanism (NRM) ’, worked with 17 national and international partners and more than 80 civil society organisations in six area-based projects covering nine conflict-affected states and regions.

Food security and nutrition

In Myanmar, during the first half of 2023, 78 of the multi-donor ‘ Livelihoods and Food Security Fund (LIFT) ’ partners implemented 94 projects in all 14 states and regions, and benefitted 7.3 million people in 276 townships including areas heavily affected by conflict. LIFT partners reached 176 521 individuals (63 % female) with nutrition-specific or nutrition-sensitive programming.

Case study

4.2.1.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

South Asia

Faced by droughts, insecurity and violence, restrictions for women to participate in society, and food insecurity, the humanitarian situation in Afghanistan continued to worsen with the number of people in need increasing to 29 million in 2023. At the end of 2023, 15.8 million people were acutely food insecure (40 % of the population). The situation of women and girls remained particularly dire as their rights and opportunities were further restricted by the interim Taliban leadership. The EU pursued its priorities set after the Taliban takeover, focusing on alleviating the impact of the grave humanitarian crisis through our basic needs aid package and engagement with the de facto authorities on inclusion, human rights, and the provision of an enabling civic space for civil society and the media to operate fairly and freely in the country. In 2023, approximately EUR 157 million were allocated to the crisis to provide lifesaving assistance. Also, Humanitarian Air Bridge (HAB) flights delivered 710 tonnes of life-saving medical relief items mainly for humanitarian organisations in Afghanistan.

In 2023, Pakistan has been marked by intense rainfall, landslides and flash floods across all provinces of the country. Combined with an unprecedented economic crisis marked by high inflation, the humanitarian needs continue to persist with at least 10.5 million people still in need of assistance. In 2023, the EU provided EUR 18.5 million in humanitarian assistance. The initial allocation (EUR 6.5 million) was intended to support education and disaster preparedness, while an additional funding (EUR 12 million) was mobilised to respond to the worsening humanitarian situation due to the floods.

South-East Asia

Myanmar was hit by the extremely severe Cyclonic Storm Mocha, which brought fatalities and more than EUR 2 billion in estimated damage. Furthermore, coordinated attacks by opposition forces against the military at the end of 2023 brought an escalation of the conflict and a rapid rise in the rate of displacement. Accordingly, the humanitarian situation in Myanmar continued to deteriorate, with 18.6 million people in need and about 2.6 million internally displaced. To respond to the growing humanitarian needs across the country, the EU provided close to EUR 33 million in 2023 in humanitarian aid. An additional EUR 3 million were allocated to help the many refugees fleeing the country, including to Thailand, India, Malaysia and Indonesia. EU assistance focused on protection, food, health, nutrition, water and sanitation, shelter and education in emergencies.

As the Rohingya crisis entered its sixth year, the Cox’s Bazar district in Bangladesh remained the host to the world's largest refugee camp with almost one million aid dependent Rohingya refugees. With no prospect for a rapid resolution of the crisis in sight, especially after the military coup in Myanmar, the EU contributed over EUR 31 million from its humanitarian, emergency and disaster preparedness budget to alleviate the suffering of Rohingya refugees and their host communities in Bangladesh in 2023. Over 32 000 Rohingya refugees on the island of Bashan Char also benefited from EU humanitarian assistance. The key needs addressed included food assistance, health, nutrition, water sanitation, and hygiene (WASH), protection, shelter and education.

In 2023, the EU provided over EUR 4.6 million in humanitarian and disaster preparedness assistance to the Philippines, to address needs arising from conflict in Mindanao and natural disasters. The main sectors of intervention were food security, WASH, shelter, education in emergencies, health, protection, and disaster preparedness. The EU contributed to alleviating the needs of almost 100 000 persons displaced due to conflict and natural catastrophes including typhoons, floods and volcanic eruptions. In addition, the EU supported the authorities to be better prepared in case of disasters.

The EU provided over EUR 4 million in disaster preparedness and humanitarian assistance to Nepal, supporting the efforts of national and local authorities to better prepare for a wide range of natural disasters. The EU also provided immediate humanitarian assistance following the major earthquake in Western Nepal, delivering shelter, WASH and protection assistance to the most vulnerable families affected. The European Humanitarian Response Capacity stock based in Kuala Lumpur was also mobilised to provide tents adapted to the harsh winter conditions.

4.2.1.4.    Crisis response and preparedness

New EU crisis response actions financed by the rapid response pillar were launched in Pakistan, Myanmar and Afghanistan. In Pakistan, the Commission deployed rapid response resources to strengthen the ability of the government of Pakistan to prevent and counter violent extremism and terrorism. Support was provided to the capacity of law enforcement institutions, according to international best practice, to enable a better understanding of terrorism cases and to bring justice closer to the people.

In Myanmar, the EU helped increase compliance with international humanitarian law among emerging armed actors and contribute to the protection of human security and vulnerable conflict-affected civilians, in particular women, children and minorities.

In Afghanistan, the EU continued to promote social accountability and inclusive dialogue and to support the protection of the Afghan population, as well as the prevention of violence towards minorities and marginalised groups. The EU also continued to provide support at the regional level to displaced Afghans, notably via UN agencies.

4.2.2.    Central Asia

4.2.2.1.    Introduction (policy developments)

High-level relations between the EU and Central Asia intensified in 2023, confirming strong political will in all five Central Asian countries to engage with the EU. The EU continued to work on the implementation of the EU Strategy on Central Asia from 2019, while addressing the impact of Russia’s war of aggression against Ukraine and supporting regional cooperation. The situation in Afghanistan also continued to inform the EU’s policy towards the region.

In May 2023, high-level officials and representatives from Central Asia, EU institutions, EU Member States and international institutions, including the European Investment Bank (EIB) and the European Bank for Reconstruction and Development (EBRD) met in Almaty, Kazakhstan for the second EU-Central Asia Economic Forum. They discussed common economic initiatives to support the green and digital transition, improve the business environment, and develop trade and connectivity in Central Asia. The Forum included a business event to exchange views with private sector representatives and facilitate business contacts between the EU and Central Asia.

In June 2023, the second Leaders’ Meeting took place in Cholpon-Ata, Kyrgyzstan, with the participation of President Michel and the Presidents of the five Central Asian countries. On 23 October 2023, the 19th EU-Central Asia Ministerial meeting was chaired by High Representative Borrell in Luxembourg in the presence, for the first time, of the EU27 Foreign Ministers. On this occasion, the EU and Central Asia endorsed the Joint EU-Central Asia Roadmap for Deepening Ties between the EU and Central Asia, which identifies 79 concrete action points (including the decision to hold a Summit) for enhancing dialogue and cooperation between the two regions.

Central Asia showed considerable interest in developing sustainable transport links with the EU. The EU conducted a study on Sustainable Transport Connections between Europe and Central Asia, led and funded by the European Commission and implemented by the EBRD, and published in June 2023. The Study identified the development of the Trans-Caspian Transport Corridor (TCTC) as the most sustainable option and proposed 33 hard infrastructure investment needs across the region and seven coordinated actions on soft connectivity. The Global Gateway Forum which took place in Brussels from 25 to 26 October 2023 provided an opportunity to follow up on the recommendations of the study, and was well attended by Central Asian partners.

Enhanced Partnership and Cooperation Agreement (EPCA) negotiations with Tajikistan were launched in February 2023.

Human rights were discussed with all Central Asian countries in the annual human rights dialogues.

In September 2023, EU grants of EUR 20 million to the regional Central Asia Team Europe Initiative on Water, Energy and Climate Change, and EUR 20 million to the Team Europe Initiative on Digitalisation, were adopted.

4.2.2.2.    Implementation

The European Union continued to pursue the primary objectives of the EU Strategy on Central Asia, aiming to foster resilience, prosperity, and regional cooperation amidst the geopolitical dynamics caused by Russia's war of aggression against Ukraine. Emphasising connectivity as a policy cornerstone, the Global Gateway strategy is especially relevant for the landlocked Central Asian region seeking to enhance its transport, energy, and digital infrastructure. Connectivity remains therefore a critical objective for the EU's engagement with Central Asia.

At the second EU-Central Asia Economic Forum held in May 2023 in Kazakhstan, the EU and Central Asian representatives acknowledged the growing strategic significance of their partnership. All participants expressed a collective resolve to further economic transformation in Central Asia, stressing the need to improve the business climate and transition to green and digital economies, and to bolster EU-Central Asia economic and trade relations.

The Team Europe Initiatives on Water, Energy and Climate Change and on Digital Connectivity made significant progress in 2023. To advance the connectivity agenda, the EU took active steps to operationalise the Study on Sustainable Transport Connections between Europe and Central Asia. Moreover, the adoption of a new regional ‘Prosperity’ programme of EUR 15.4 million, will support internationalising Central Asian businesses, and build capacity in the field of critical raw materials.

Human development and inequalities

Social sector and (vocational) education and training remain at the heart of the EU cooperation with Central Asia. The EUR 10 million regional programme on ‘Dialogue and Action for Resourceful Youth in Central Asia’, implemented by the European Training Foundation from 2022 to 2027, supports inclusive and labour market relevant skills development opportunities for young people. Within its framework, national and regional consultations were arranged to map the current policy environment and the needs of key stakeholders and identify main gaps and opportunities. The regional programme also contributed to the preparation of the session on education during the fourth EU-Central Asia Civil Society Forum, which saw the participation of about 100 representatives from civil society and the public and private sector, including researchers and media operators.

Green Deal

Under the Team Europe Initiative on Water, Energy and Climate Change, in 2023 the EU adopted a EUR 20 million grant and organised two working group meetings. This work aims to establish a regional coordination mechanism, expand activities on water and sustainable energy, and support the priorities under the International Fund for Saving the Aral Sea Basin programme. An EU-funded EUR 19 million grant, approved in December 2023, aims at supporting the greening of the cotton value chain in Tajikistan, a critical sector for the sustainable development of the country. The Kyrgyz Republic approved a new water law, regulating the management and conservation of water resources, fulfilling a pre-condition to a new budget support programme on water whose financing should be in the AAP to be proposed for adoption in 2024.

Sustainable growth and jobs

The enhancement of the connectivity agenda between the EU and Central Asia is important to sustainable growth and jobs. The 2023 Study on Sustainable Transport Connections between Europe and Central Asia , published in June 2023, and the planned Investors’ Forum (29 to 30 January 2024) aim to begin the long-term development of the Trans-Caspian Transport Corridor with Europe and improve connectivity between Central Asian partner countries. 

Further supporting sustainable growth and jobs, in November 2023, the EU adopted a new regional ‘Prosperity’ programme of EUR 15.4 million, to further the Central Asia connectivity agenda by developing the Trans-Caspian corridor and help internationalise businesses, as well as paving the way for capacity development in the field of critical raw materials. The EU also disbursed the first EUR 4 million tranche of the total EUR 30 million approved in 2022 for the Tajikistan Technical Education Budget Support programme , in the aftermath of the 2022 reforms of public financial management.

Digitalisation, science, technology and innovation

The EU adopted an EUR 20 million grant to implement the Regional Team Europe Initiative on Digital Connectivity, which aims to establish an enabling environment promoting regulatory and legislative reforms, last mile access, and cybersecurity. This paves the way for launching satellite infrastructure investments that will give Central Asia autonomy on internet connectivity.

Migration and forced displacement

In 2023, the EU identified and supported solutions for the graduates of the regional programme ‘Supporting the Economic Empowerment of Afghan Women through Education and Training’ (implemented by the UNDP from 2019 to 2027), who did not want to return to Afghanistan after the change of regime in 2021. The EU Delegations in the region closely followed up on the identification of temporary solutions in three host countries: Kazakhstan, Kyrgyzstan, and Uzbekistan. The EU also financed the Spanish government’s proposal to grant 22 Afghan graduates the opportunity to continue studying in a public university in Spain in 2023-2024.

Governance, peace and security (and conflict prevention)

In Uzbekistan, the EU started the implementation of a programme worth EUR 8 million to support the Ministry of Justice in the implementation of its reforms, with a particular focus on anti-corruption. In addition, the 2023 Annual Action Plan was adopted, consisting of a EUR 5 million measure to further support the delivery of public services and the e-governance reform.

The EUR 9 million cooperation facility 2021-2024 for Kazakhstan, aimed at facilitating the execution of the Enhanced Partnership and Cooperation Agreement (EPCA), focusing on sustainable economic development, initiated its operations in December 2023. One of the two components of the Technical Assistance, also launched in December 2023, aims at expediting the implementation of the most critical aspects of the EPCA, notably including rule of law, with the objective of strengthening the legal framework and institutions, upholding human rights (including labour rights), and ensuring justice in accordance with Venice Commission standards.

Food security and nutrition

In Uzbekistan, the Financing Agreement of a second budget support operation to support the agri-food sector and sustainable livelihoods (EUR 27 million) was signed. In addition, two contracts were signed (EUR 10.2 million) with the French Agency for Development (AFD) and the UN Food and Agriculture Organisation (FAO) to support the Green Economy Reform in Uzbekistan and ensure food security practices.

Case study

4.2.2.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

The Central Asia region’s exposure to natural hazards and water scarcity enhances vulnerabilities and generates a high risk of conflict, including water disputes, emphasising the importance of protection of people on the move and disaster preparedness. The Russian war of aggression against Ukraine and the instability in Afghanistan add another layer of vulnerability to the region, further emphasising the importance of protection of people on the move and disaster preparedness. In 2023, the EU allocated around EUR 3 million for Kyrgyzstan and Tajikistan under the Pilot Programmatic Partnership (PPP) implemented by the International Federation of the Red Cross (IFRC). The PPP (implemented from 2022 to 2025) plays an essential role in supporting local communities to prepare for, respond to, and recover from disasters.

4.2.2.4.    Crisis response and preparedness

Actions carried out under the crisis response component of the rapid response pillar of NDICI-Global Europe supported work with Central Asian partners in the areas of stability, social cohesion and cross-border dialogue, directly implementing the priorities set in the new EU strategy on Central Asia.

A crisis response action supports capacities in Kyrgyzstan, Tajikistan, and Uzbekistan to reintegrate citizens returned from conflict zones, primarily from Iraq and Syria, and to hold to account perpetrators of international crimes.

Through the thematic programme on peace, stability and conflict prevention, the EU is boosting local conflict transformation and peacebuilding initiatives in the ethnically diverse Fergana valley that straddles Kyrgyzstan, Tajikistan and Uzbekistan and where relations remain tense.

Under the NDICI-Global Europe (thematic peace and stability pillar), the EU continued to support efforts to prevent and counter violent extremism across the region in particular under the ‘Strengthening Resilience to Violence and Extremism’ (STRIVE) Asia programme, through a whole of society/multi-stakeholder approach.

In addition, The EU UN Global Terrorist Threat Facility commenced work in Kyrgyzstan and Tajikistan.

The EU Special Representative for Central Asia continued to monitor the situation on the ground including through travelling to the areas where violence had broken out and, where appropriate offered dialogue facilitation and good offices. She continued to engage with the respective governments and civil society following the outbreak of violence in Kazakhstan, on the Kyrgyz-Tajik border, and in Karakalpakstan, Uzbekistan.

4.2.3.    Middle East/Gulf region 

4.2.3.1.    Introduction (policy developments)

The partnership between the EU and the Gulf Cooperation Council (GCC) and its member states, as set forth in the Joint Communication on ‘a Strategic Partnership with the Gulf’( 82 ), maintained its momentum throughout the year. On 1 June 2023, Luigi Di Maio was appointed as the first-ever EU Special Representative (EUSR) for the Gulf. The 27th EU-GCC Joint Council that was held in Muscat on 10 October 2023 generated very positive outcome, namely the establishment of a structured EU-GCC Security Dialogue, the intent to swiftly organise a first ever GCC-EU Summit, agreement on the co-organisation of a High Level Security Forum on Regional Security and Cooperation, agreement on humanitarian affairs cooperation, and agreement on the updated EU-GCC Joint Action Programme.

Within this framework the EU continued engaging with GCC partners on the basis of the bilateral Cooperation Arrangements it has concluded with the six GCC member states, holding Senior Officials Meetings sectoral working groups and Political Dialogues respectively with the UAE (Abu Dhabi, 6 March), Qatar (Brussels, 18 July), the Kingdom of Saudi Arabia ((KSA) Brussels, 31 July), Bahrain (Manama, 20 November) and Kuwait (Brussels, 11 December).

The EU focused on the implementation of the five set priority policy areas: prosperity (including trade, economic diversification, transport, digitalisation, research and innovation, and space), green transition and energy security, regional stability and global security (including political-military dialogue, maritime security, disaster prevention and preparedness, CBRN, conflict prevention and mediation, counterterrorism, cyberspace, judicial cooperation, hybrid attacks, strategic communication), a global humanitarian and development partnership, and people (rule of law and good governance, human rights, culture, education etc.).

The level and intensity of bilateral political exchanges also increased. Saudi Foreign Minister Prince Faisal bin Farhan Al Saud visited Brussels on 13 February, and Qatari State Minister for Foreign Affairs Al-Muraikhi visited on 20 March. The Emirati Minister of Foreign Affairs, Sheikh Abdullah bin Zayed Al Nahyan visited Brussels on 16 May and COP President Sultan Al-Jaber on 6 June. President of the European Council Charles Michel met the Crown Prince/Prime Minister of Saudi Arabia on 10 September in the margins of the G20 summit in New Delhi. President of the European Commission Ursula von der Leyen met the UAE's President, Sheikh Mohammed bin Zayed Al Nahyan, in Abu Dhabi on 7 September. High Representative/Vice-President (HRVP) Josep Borrell met with the Saudi Foreign Minister, Prince Faisal bin Farhan Al Saud in Muscat on 9 October and in Manama on 18 November. He also visited Qatar on 19 November and the UAE (Sir Bani Yas forum) on 6 to 7 November. He paid his first visit to Oman on 10 to 11 October on the occasion of co-chairing the EU-GCC Joint Council.

The EU was well represented at the COP28 in Dubai (30 November to 12 December) with the President of the European Council Charles Michel, the President of the European Commission Ursula von der Leyen, seven Commissioners and the EU Special Representative (EUSR) for the Gulf attending.

On his part, the EUSR for the Gulf, Luigi Di Maio, visited all GCC countries on several occasions after taking up his duties in June. As regards human rights, with the exception of Oman, Human Rights Dialogues were held with all GCC countries in the course of 2023.

Parliamentary engagement has also been active, notably the visit of the European Parliament (EP)’s Delegation for the Arabian Peninsula (DARP) to Saudi Arabia in November for the 16th KSA-EU interparliamentary meeting. The EP Delegation for Iraq paid a visit to the country in March 2023. On 17 to 19 December 2023, DARP visited Yemen (Aden), and met with the UN Special Envoy (UNSE) Hans Grundberg in Amman on 17 December. In addition, an UAE Delegation visited Strassbourg on 14 September for the 8th EU-UAE IPU meeting.

The EU welcomed the appointment of Mohammad Al-Sudani as Prime Minister of Iraq on 27 October 2022 which allowed the EU to re-launch bilateral institutional engagement. The EU held the third Cooperation Council with Iraq on 19 March 2023 in Brussels, followed by the Subcommittee on Democracy and Human Rights on 11 July 2023. Progress was also registered on the migration file, with Iraq’s improved cooperation on returns and readmissions and the signature of several bilateral Memoranda of Understanding with EU Member States. The HRVP met with Foreign Minister Fuad Hussein in the margins of the 7th Syrian Conference, while President Charles Michel met Prime Minister Al-Sudani in October 2023. The EU continues to provide humanitarian assistance, long-term development aid and support to dialogue, reconciliation, stabilisation, and accountability for Da’esh crimes (UNITAD). The EU also supports civilian security sector reform, notably through the ongoing EU Advisory Mission (EUAM) whose mandate was reviewed in 2023, as well as the efforts of the Global Coalition against Da’esh, to which it is a non-military partner.

Throughout 2023, the EU continued its active diplomatic outreach to relevant actors in Yemen, in close coordination with the UN. As part of its efforts to contribute to peace and stability, the EU has in 2023 continued its integrated approach to the peace process to promote coherence and effectiveness of the EU and Member State actions. In addition to support to the UNSE, the EU has also continued support to de-escalation and peace-making initiatives, stabilisation, development assistance and humanitarian support. On 23 December, UNSE Grundberg publicly announced that he had secured the agreement of the parties (including the Presidential Leadership Council and the Houthis) on the main principles of an UN-led peace process leading to a final comprehensive and inclusive peace deal, including a permanent nation-wide ceasefire. Unfortunately, these efforts have been recently put on hold due to the situation in the Red Sea.

In line with Council Conclusions (December 2022), the EU continues its critical engagement in Iran based on a comprehensive policy approach considering all options at its disposal: critical where necessary, and ready to engage, on the basis of mutual respect, where interests align.

4.2.3.2.    Implementation

Human development and inequalities

In December 2023, a COP28 side event on education was organised in a ‘Team Europe’ approach with the Islamic Development Bank (IsDB) and Dubai Cares in Dubai, the United Arab Emirates. The event, which saw the participation of a German government representative, was entitled ‘Global Gateway: building resilient education systems and the role of education, teachers, and youth in supporting vulnerable populations for achieving a sustainable future’.

The European Union's actions in Iraq have effectively contributed to policy reform and system enhancement in various sectors, including education, technical and vocational education and training (TVET), and social protection. Notably, the initiative ‘Promoting Girls’ Education in Iraq’, funded with EUR 1 million and adopted in 2023, is dedicated to improving girls' access to and completion of primary and lower secondary education. Complementing the EU's substantial programmes supporting Iraq's overall national reform for quality basic education, in collaboration with government entities at both federal and local levels, this initiative also fosters partnerships with civil society to raise community awareness about the value of girls' education, and encourages parental support for educational attainment, while engaging civil society in the oversight of educational services.

Green Deal

The EU bolstered its commitment to programmes in Iraq that focus on climate change adaptation, mitigation, and the transition to a low-carbon economy. Through technical assistance, the EU has facilitated Iraq's advances for example in climate-resilient agriculture, climate-adapted urban reconstruction, sustainable water systems, energy transition, as well as the promotion of green finance and private sector development. The ‘Greening Iraq’ initiative, part of the 2023 Annual Action Plan and funded with EUR 18.9 million, capitalises on the favourable dynamics to further the climate change agenda and align with the Iraqi Government aspirations. This initiative aims to catalyse the green economy and assist Iraq to shift away from fossil fuels to fulfil its climate change obligations. It also endeavours to protect the environment and biodiversity, enhance climate resilience through environmental justice, and support Iraq in aligning with EU strategic priorities and interests.

Sustainable growth and jobs

In addition to ongoing and newly signed programmes to bolster economic development, the Team Europe Initiative for Iraq ‘TAEUFIQ’, which was officially launched during Europe Day celebrations in May 2023 in Baghdad, contributes to increased, diversified, sustainable and inclusive economic growth, leading to improved livelihoods and decent employment in Iraq, through joint policy dialogue and the coordination of the joint programme portfolio. Throughout 2023, in the framework of TAEUFIQ, the EU and several Member States conducted a joint policy dialogue in the areas of access to finance and banking sector reform, business development and the investment/business enabling environment. TAEUFIQ also actively contributed to developing the private sector and investment in Iraq.

Actions aimed at fostering the Yemeni population’s resilience are planned within the Special Measure for Yemen, adopted by the European Commission in September 2023. This will address the shortcomings in the economy by supporting the functioning of key economic institutions and fostering the economic empowerment of young people and women, towards a greener, more sustainable business model.

Migration and forced displacement

The Afghan Regional Displacement Team Europe Initiative is the EU’s coordinated response to the continuing Afghan regional displacement crisis. Initiatives in Iran supporting education, health and livelihoods as well as regional initiatives that cover Iran are part of this TEI. These support Afghans in Iran as well as host communities.

In Iraq, the EU continued its engagement with the Iraqi authorities in the migration dialogue, as well as supporting Iraq in creating the conditions and perspectives for all Iraqis - in particular youth and displaced populations and returnees - to thrive in a more prosperous, shock-resilient and democratic Iraq, for example, through strengthening the overall national and migration specific governance capacities, and addressing the root causes of fragility, migration and forced displacement including through job creation and TVET. The European Commission adopted a 2023 Annual Action Plan specifically devoted to migration within the Regional Multiannual Indicative Programme (RMIP) to tackle solutions for displaced and vulnerable populations.

Governance, peace and security (and conflict prevention)

A workshop on Fragility Risk and Resilience Assessments (FRRAs) with the Islamic Development Bank (IsDB) was organised in Brussels in September 2023. Participants included Multilateral Development Banks (MDBs), UN Agencies, and other international organisations.

At a critical time for the UN-led process in Yemen, the EU provides multi-track support to the Office of the Special Envoy of the Secretary-General for Yemen (OSESGY), and to international and local NGOs covering a wide spectrum of Track II activities and grassroots dialogue. This helped affirm the EU as a key supporter of a political solution to the conflict in Yemen.

Food security and nutrition

Actions aimed at strengthening food security in Yemen are foreseen in the Special Measure adopted by the European Commission in September 2023, building upon a layered nexus response, and providing longer-term livelihoods support and community asset development, with dedicated agri-business activities.

Case study

4.2.3.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

The escalation of violence in the Middle East following the terrorist attack on Israel in October 2023 led to large-scale destructions in Gaza and the displacement of the entire Palestinian population residing there (2.2 million people). Humanitarian needs across the occupied Palestinian territory are massive in all sectors. Violence also escalated in the West Bank, including East Jerusalem. The EU responded by quadrupling its assistance to Palestine to more than EUR 100 million to address the most basic needs of Palestinians. Despite the considerable security and logistical challenges, EU humanitarian partners continued to respond to the crisis in all sectors. In 2023, 33 Humanitarian Air Bridge flights supported humanitarian partners and EU Member States in the transport of nearly 1 435 tonnes of humanitarian goods. The UCPM was activated multiple times, providing multi-faceted support, including through repatriation flights, in-kind assistance, and logistical support.

The European Commission continued to address the needs of the population in Syria, as well as the needs of Syrian refugees and vulnerable host communities in neighbouring countries (Türkiye, Lebanon, Jordan, Egypt, and Iraq). Inside Syria, 15.3 million people needed humanitarian assistance in 2023. The EU maintained its focus on multi-sectoral life-saving actions, providing more than EUR 262 million of assistance to support the most vulnerable impacted by this crisis, further compounded by the series of earthquakes in February 2023 that struck in particular northwest Syria. This assistance contributed notably to the vital delivery of food, medicine, clean water, emergency shelter, as well as protection and Education in Emergencies in the form of non-formal education. In Lebanon and Jordan, more than 4.6 million people were in need of humanitarian assistance. The EU’s humanitarian funding supported the most vulnerable in sectors such as health, protection and education.

The European Commission was also directly involved in international diplomatic initiatives related to the Syria crisis, such as the Brussels 7th Conference on ‘Supporting the future of Syria and the region’ held in June 2023, the Humanitarian Task Force of the International Syria Support Group in Geneva, and other advocacy efforts to promote the respect of humanitarian principles and International Humanitarian Law.

After nine years of war, and a fragile truce, Yemen is facing a tragic humanitarian situation further exacerbated by climate change, a collapse of health and education systems, epidemics, landmines and a migration crisis. In 2023, 21.6 million people (67 % of the population) needed humanitarian assistance and protection services. 17 million faced acute food insecurity and 4.5 million people were displaced. In 2023, the EU allocated EUR 145.12 million in humanitarian aid to assist those affected by the conflict, disasters and displacement in Yemen, focusing on the most vulnerable and disadvantaged. The assistance included health care, nutrition, food, protection, education in emergencies, water, hygiene, and shelter interventions. In addition, the European Commission organised the main donor coordination events on Yemen jointly with Sweden, contributing to a united voice among actors in humanitarian negotiations. The latest Senior Officials Meeting (SOM) took place on 23 May 2023, agreeing on common messages as well as on 12 concrete measures addressing humanitarian advocacy, access, humanitarian space, quality of aid, funding, and the humanitarian-development-peace nexus initiatives on the drivers of the crisis.

Five years since the end of the conflict against the Islamic State (IS), the humanitarian situation in Iraq remains fragile. Approximately 2.5 million people remain in need of humanitarian assistance and 1.1 million are internally displaced. The conflict has uprooted millions of people, eroded social cohesion, disrupted access to basic services, destroyed livelihoods and led to increased protection risks. In 2023, the European Commission’s strategy continued to focus on reinforcing the resilience of affected displaced populations through integrated protection response, legal assistance (civil documentation), and education support, in addition to a lighter multi-sector assistance to the most vulnerable displaced households living in informal settlements.

4.2.3.4.    Crisis response and preparedness

In Syria, the EU responded to the January 2023 earthquake in the northwest of the country. In parallel, support continued to stabilisation efforts in northeast Syria, to the UN-led peace efforts, as well as to the UN International, Impartial and Independent Mechanism (IIIM) promoting accountability for crimes committed in Syria since 2011. During 2023, IIIM contributed information, evidence and legal analysis to landmark cases such as the French court’s arrest warrant for President Assad over the alleged use of banned chemical weapons against his own people.

In Iraq, the EU continued its support to Iraq’s reintegration of Iraqi returnees from northeast Syria and the EU UN Global Terrorist Threat Facility provided an important assistance to register and screen Iraqi returnees living in Al Hol Camp.

The EU continued its support of Security Sector Reform through the EU Advisory Mission (EUAM Iraq), providing strategic advice and expertise to the Iraqi authorities on the civilian aspects of security sector reform, including the National Security Strategy. The mission also contributed to ensure accountability for crimes committed by Da’esh, by institutionalising the implementation of national strategies to manage threats from violent extremism and terrorism.

Support was also ensured for international efforts to ensure accountability for crimes committed by Da’esh through the work of the United Nations Investigative Team to Promote Accountability for Crimes Committed by Da'esh/ISIL (UNITAD).

In Israel and the Palestinian Territories, the EU was already supporting peace efforts, notably those lead by the EU Special Representative for the Middle East Peace Process (EUSR MEPP) towards a final settlement of the Israeli-Palestinian conflict. These efforts have been increased following the 7 October attack into Israel by Hamas and the launch of a full-scale war on Gaza, both with additional support for peace efforts and with support to meet the overwhelming medical and psychological needs caused by the extreme levels of violence experienced by civilians in Israel and in Palestine. Furthermore, the EU finances two civilian Common Security and Defence Policy (CSDP) Missions: the EU Police Mission for the Palestinian Territories (EUPOL COPPS) based in Ramallah in the West Bank, and the EU Border Assistance Mission for the Rafah Crossing Point (EUBAM Rafah) based in Ramat Gan, Israel.

Meanwhile, in Yemen, support continued to UN-led peace efforts, including through support to mediation and truce monitoring efforts. The EU also supported the UN in its work, within a challenging political framework, to avert a major environmental disaster linked to the fast deteriorating floating oil storage and offloading vessel SAFER.

The EU action in support of the United Nations Verification and Inspection Mechanism (UNVIM) in Yemen contributes to the efforts to restore the unimpeded free flow of commercial items to Yemen through the provision of a transparent and effective clearance process for commercial shipments destined for Yemeni ports which are not under the control of the government of Yemen and has been extended until September 2024.

4.2.4.    The Pacific

4.2.4.1.    Introduction (policy developments)

The Pacific Island Countries (PICs) are key partners for the EU in a number of important policy areas, including climate action and green transition, ocean governance and environmental protection. They are also important allies in upholding the international rules-based order with the UN at its core.

The EU is a Dialogue Partner of the Pacific Islands Forum (PIF), the region’s main political organisation, and participated in the 2023 PIF Leaders Meeting in Cook Islands. The EU is the first and so far only Permanent Observer of the Pacific Community (SPC), the main technical and scientific regional organisation of the Pacific.

The EU’s strategic priorities for the region are underpinned by the EU Strategy for Cooperation in the Indo-Pacific, adopted in 2021, which highlights the strategic relevance of the region for Europe’s prosperity and security. The Global Gateway strategy supports a number of priorities of the Indo-Pacific strategy, providing a viable and attractive offer for partner countries by boosting transparent and value-based investments for a sustainable, resilient and cooperative infrastructure development. The EU’s priorities are also closely aligned with the priorities of the 2050 Strategy of the Blue Pacific Continent endorsed by PIF Leaders, notably in areas such as economic development, climate change, oceans and environment, people, technology and connectivity, and peace and security.

The new Partnership Agreement with the African, Caribbean, and Pacific states was signed in November 2023 in Apia, Samoa. The Samoa Agreement includes a new Pacific Protocol which provides for stronger region-to-region engagement. The shared priorities of the Pacific Protocol will guide EU-Pacific cooperation for years to come.

At multilateral level, the Pacific countries unanimously supported most UN resolutions as regards Ukraine. Pacific countries suffered from supply chain disruptions as well as higher food and energy prices resulting from the Russian war.

The EU strengthened relations with the Pacific region during 2023 through conducting ministerial, Senior Official Meetings and Political Dialogues. The EU advanced steadily in the preparation of the Team Europe Initiative ‘Green Blue alliance for the Pacific and Timor-Leste’ that promotes equal societies, fundamental values, human development, and peace and security across 18 partner countries and Overseas Countries and Territories (OCTs).

4.2.4.2.     Implementation

Human development and inequalities

In Papua New Guinea, the Spotlight Initiative supports the establishment of the permanent Parliamentary Committee on Gender Equality and Women’s Empowerment (GEWE). A two-day GEWE Summit, organised at the end of November 2023, served as the official closing event of the Spotlight Initiative. Building on this positive experience, the EU adopted in 2023 a follow-up programme to continue supporting work on protecting survivors of gender-based violence, strengthening access to justice and ending violence against women and girls.

Green Deal

In Papua New Guinea, the EU launched the Forest, Climate Change and Biodiversity (FCCB) project, which forms the basis of the Team Europe Initiative ‘Our Forest, Our Future’. In the course of 2023 France officially confirmed its intention to participate in the Initiative.

In Fiji, the EU signed, in 2023, a EUR 12.8 million Financing Agreement kicking-off the country’s implementation of its cross-cutting Budget Support programme ‘Climate Change Act’.

In Samoa, the EU is a key partner in the water, sanitation, and hygiene (WASH) sector. During her mission to Samoa at the end of 2023, on the occasion of a meeting with the Prime Minister of Samoa, Commissioner Urpilainen announced the disbursement of a EUR 3 million tranche within the Budget Support programme for WASH and Climate Change Adaptation.

Sustainable growth and jobs

In 2023 the EU signed a EUR 7 million Financing Agreement for Technical and Vocational Education and Training (TVET) in the agro-forestry sector in Timor-Leste. The programme, which will be implemented by the International Labour Organisation (ILO), seeks to promote green and sustainable economic diversification and resilience in the country through private sector development, and TVET for youth integration in the labour market.

At the end of 2023, the EU started implementing a project in partnership with the International Trade Centre (ITC) aimed at supporting Timor-Leste’s accession to the Association of South-East Asian Nations (ASEAN), to the World Trade Organisation (WTO), and to the Economic Partnership Agreement.

Migration and forced displacement

Although the EU does not fund projects in the Pacific specifically devoted to address forced migration, most bilateral aid mainstreams activities aimed at combating the root causes of migration, such as food and water scarcity due to climate change events (droughts or floodings). In 2023, a EUR 3 million action was adopted to address the water management in the Federated States of Micronesia, notably to combat water scarcity due to more frequent droughts and saline contamination of groundwater reserves.

Governance, peace and security (and conflict prevention)

After a slow start in 2022 and several adjustments, the budget support ‘Partnership for Good Governance’ in Papua New Guinea managed to achieve the indicators allowing the disbursement of the 2022 and 2023 combined fixed and variable tranches for a total of EUR 4.25 million.

Food security and nutrition

The final tranche of the EDF funded Budget Support in the agriculture sector, focusing on a much needed reform of the Ministry of Agriculture, was disbursed to Fiji’s government in 2023. In the aftermath of the COVID crisis, when a large number of Fijian families returned to their home villages to grow basic food products, this successful budget support programme paved the way to better performing and diversified agricultural practices, reducing Fiji’s dependency on food imports.

In Timor-Leste, the EU has been supporting the nutrition sector for several years, and a new EU 12 million budget support action on Social Inclusion and Nutrition was adopted in 2023. The ongoing Nutrition Budget Support programme ‘Partnership for Improving Nutrition in Timor-Leste’ (PINTL) contributed to increase the cure rate of Severe Acute Malnutrition among infants and children under five, which has increased from 66 % to 83 % between 2016 and 2022.

Vanuatu, which is located on the earthquake-prone ‘ring of fire’ and sits at the centre of the Pacific cyclone belt, was hit in the course of 2023 by five tropical cyclones and multiple earthquakes. Despite these natural disasters affecting the implementation of the Value Chain Budget Support programme (VaVaC), the EU managed to disburse the EUR 1.4 million fifth fixed tranche to Vanuatu’s government. The programme, which commenced in May 2018, focuses on equitable, broad-based, and sustainable economic growth and recovery in the coconut, beef, fruits and vegetables value chains. It aims to promote better organisation, climate-resilient production, value addition, safety and quality, and trade resilience.

The Financing Agreement (EUR 4.5 million) for the Coconut Sector Rehabilitation Programme in Tuvalu was signed in May 2023. The overall objective of this action is to increase sustainable agricultural productivity and economic growth in Tuvalu with a specific focus to rehabilitate the coconut industry.

Case study

4.2.4.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

Several Pacific islands have been hit by natural hazards, in particular Vanuatu, requiring EUR 0.8 million of support to address the humanitarian consequences of tropical cyclones and drought.

4.2.4.4.    Crisis response and preparedness

In Papua New Guinea, peace-building efforts at community level were pursued to help build trust among communities and bringing positive change in understanding, behaviour and commitment of the key stakeholders (such as local government, civil society actors, police and communities) to reach appropriate, non-violent solutions to disputes.

In line with the EU’s Strategy for Cooperation in Indo-Pacific, the Critical Maritime Routes Indo-Pacific (CRIMARIO II) project established new partnerships with South and Southeast Asian partners to boost interconnected maritime coordination to enhance maritime security.

4.3.    Americas and the Caribbean

4.3.1.    Americas

4.3.1.1.    Introduction (policy developments)

In 2023, the EU made tangible progress in its engagement with Latin America and the Caribbean. Many high-level visits took place by various members of the College including President Von der Leyen, Commissioner Urpilainen and the High Representative/Vice-President Josep Borrell, as well as by members of EU Member States´ governments. President von der Leyen visited Argentina, Brazil and Chile in June 2023.

In June 2023, the Commission and the High Representative adopted the Joint Communication ‘A New Agenda for Relations between the EU and Latin America and the Caribbean’, making the case for a stronger and modernised partnership through reinforced political engagement, boosting trade and investment, and building more sustainable and inter-connected societies.

The EU-CELAC Summit held in Brussels on 17 to 18 July 2023 was a historic encounter eight years after the previous one. It brought together leaders of all 60 countries from both regions. Leaders committed to renewing and modernising the bi-regional partnership and to hold regular summits every two years (the next one will be in Colombia in 2025). The EU, in a ‘Team Europe’ approach with the Member States, presented the Global Gateway investment agenda for the region that amounts to EUR 45 billion until 2027 in areas including renewable energies, transport, digital transformation and pharmaceutical innovation. In the margins of the Summit, a Joint Declaration for an EU-LAC Digital Alliance with 20 countries from the region was adopted. Two side-events, the EU-LAC Forum ‘Partners in change’ and the Business Round Table, fostered engagement with civil society, youth, local authorities and private sector representatives.

To complete the cycle, the Council approved Conclusions on relations between the European Union and Latin America and the Caribbean in November.

The EU-CELAC Summit also gave a vital impulse to bilateral relations between the EU and LAC countries. New cooperation avenues were opened in strategic areas: Memoranda of Understanding (MoU) on deepening cooperation on energy were signed with Uruguay and Argentina, and on critical raw materials with Argentina and Chile. A MoU on an enhanced political agenda was concluded with Ecuador, with a focus on security and the environment. The EU also signed Memoranda of Understanding on consultations with El Salvador and Honduras.

The EU-Chile Advanced Framework agreement was signed on 13 December 2023 after five years of negotiations. It is the most modern and ambitious agreement signed with any LAC country. The Agreement will deepen cooperation on the transition to renewable energy and sustainable use of raw materials, while providing an advanced level of shared trade and sustainability commitments on climate, biodiversity, labour rights, gender equality and sustainable food systems.

The EU continued building stronger bi-regional partnerships on common sectoral priorities, including through the organisation of a High-level pharmaceutical Forum on 21 March, the launch of the EU-LAC Digital Alliance in March in Colombia, and the LAC-EU Ministerial meeting on Environment and Climate in Costa Rica in May 2023. In the area of security, the second ministerial meeting between the EU and the Latin American Internal Security Committee (CLASI) took place in Brussels in September. For the first time, the EU was the Guest of Honour at the largest book fair in the Spanish-speaking world in Guadalajara, Mexico, a stepping stone to a more ambitious cultural diplomacy engagement.

4.3.1.2.    Implementation

The EU Global Gateway strategy is the overarching framework for Commission action in Latin America and the Caribbean (LAC), with a focus given to a jointly agreed investment agenda. The EU-LAC GGIA includes a list of some 130 projects. It is an endeavour in a ‘Team Europe’ approach, as is the commitment to mobilise up to EUR 45 billion before 2027 for Global Gateway in Latin America and the Caribbean. Project examples include a Team Europe Initiative (TEI) on Renewable Hydrogen in Chile (also supported by the EFSD+’s Latin America and Caribbean Investment Fund, LACIF), the development of a sustainable lithium value chain in Argentina and Bolivia, support to the Costa Rican government’s plan to shift public transportation to electric buses and trains, the improvement of maritime connectivity in the Caribbean as well as the fight against the sargassum plague, and the Tropical Forests Initiative in Brazil that will boost green economic development to prevent deforestation in the Amazon.

Human development and inequalities

The EU-LAC Days, in the framework of the third EU-CELAC Summit, included an EU-LAC Forum ‘Partners in Change’ with Youth, Civil Society and Local Authorities and an EU-LAC Business Round Table which presented important developments in the region and advocated for a more inclusive approach, and a multi-stakeholder mechanism to foster the future bi-regional partnership.

As a follow-up, the event ‘Multi-actor Dialogue Forum: Just Green Transition, Inclusive Digital Transformation, and Social Cohesion’ in October 2023, funded by the EU and organised in Costa Rica by the EU-LAC Foundation, took place. Commission services renewed the support to the EU-LAC Foundation with a EUR 2 million grant to continue facilitating the involvement of civil society and other key stakeholders in the bi-regional dialogue between EU and LAC.

Regarding education, social cohesion and the fight against inequalities, the new EU programme ‘Inclusive Societies in LAC’ (EUR 60 million) was announced by Commissioner Urpilainen at the high-level opening of the EU-LAC Forum in July 2023. This represented a key milestone to signal EU commitment to social cohesion in LAC, as well as a key contribution to the regional Team Europe Initiative (TEI) ‘Inclusive and Equitable Societies’ implemented jointly with six EU Member States.

In 2023, the programme EUROsociAL Bridge (EUR 1 million) allowed for further EU-LAC collaboration in social policy reforms and regional networks, building on the work of the EU programme EUROsociAL+, which also quick-started studies to develop the above TEI to explore how to underpin the social dimension of the EU-LAC Global Gateway Investment Agenda (GGIA) in a 360-degree approach.

A LAC regional Erasmus+ Week took place in Panama in November 2023. It was the first regional gathering since 2017, with more than 150 participants and stakeholders of these international actions. There was also a call in 2023 to build capacity for VET (Vocational Education and Training) providers to strengthen public-private cooperation.

In the field of health, the EU-LAC Partnership on ‘Health Resilience and Equitable Access to Health Products’ achieved progress in its priority areas thanks to the High-level Forum ‘Sharing pharmaceutical innovations between the EU and LAC’ held in Brussels in March 2023, the Matchmaking B2B event, and the identification of GGIA investment projects on health, water, sanitation and hygiene. Two EFSD+ initiatives selected to underpin health investments in LAC through the European Investment Bank (EIB) and the Gates Foundation initiatives were approved in 2023.

An EU-PAHO (Pan American Health Organisation) partnership was established in July 2023 on ‘Equitable access to health technologies and local manufacturing capacities in LAC’ (EUR 3.8 million), with a view to strengthening regulatory frameworks, and supporting health research, technology transfer and innovation to enhance manufacturing capacities as key drivers to enable sustainable pharmaceutical production and private sector investment.

In September 2023, the ‘EU-Central America Business Forum on Innovation in the Pharmaceutical Sector’ took place in Costa Rica, where discussions included the study ‘Regulation in the pharmaceutical sector in Central America’, regulatory and market access issues, and GGIA investment opportunities.

Reconstruction and rehabilitation projects funded under the EFSD+ LACIF blending facility, beyond physical infrastructure, aim at revitalising communities and enhancing resilience when facing natural disasters by encompassing socio-economic initiatives, to empower local populations and to stimulate economic growth. An exemplary flagship project for this sector is the Reconstruction Framework Loan (EUR 77.4 million) signed with the EIB to support the reconstruction of small-scale infrastructures damaged during the 2016 Earthquake in Ecuador.

In Bolivia, the EU budget support operation ‘Increased access to sanitation in rural areas’ continued delivering during 2023. It contributed to provide access to basic sanitation services to more than 170 000 persons in rural areas from 2019 to 2022, and 140 rural municipal governments ensured access to improved sanitation services in health centres and schools.

Green Deal

During the EU CELAC Summit, the EU stepped up its energy cooperation with Argentina and Uruguay with the signature of two Memoranda of Understanding (MoU). The former sets out key areas of cooperation, including renewable energy, hydrogen, and methane emissions abatement and stresses the need to provide a socially just energy transition. The latter highlights renewable energy, energy efficiency and renewable hydrogen as key areas of cooperation as both the EU and Uruguay strive to reach climate neutrality by 2050.

Only half of LAC countries have Multiannual Indicative Programmes (MIPs), thus the provision of support to the external dimension of the EU Green Deal continued to be a key priority under EU regional cooperation in 2023 directly supporting Global Gateway implementation. The EU’s Team Europe Initiative (Green transition) flagship programme on environment and climate change, Euroclima, provided assistance in the development and implementation of policies in key sectors, namely energy, renewable hydrogen, sustainable transport and water management. Euroclima operates by identifying key priorities for EU support during dialogue processes held with interested countries. Implementation is carried out by agencies of EU Member States and/or the United Nations system.

Examples of projects carried out in 2023 include the strengthening of energy efficiency in the Nationally Determined Contributions (NDCs) in strategic sectors for Argentina and Chile, the strengthening of the Administrative Associations of Community Water and Sewerage Systems (ASADAS) in the Greater Metropolitan Area (GMA) of Costa Rica to improve their management and resilience to climate change, and the follow-up and monitoring of climate finance flows in LAC contributing to the fulfilment of the Paris Agreement. Moreover, during 2023, AL-INVEST Verde (EU-LA Alliance for Sustainable Growth and Jobs), implemented a number of important actions related to the EU Deforestation regulation in LAC during 2023.

Green Deal country projects promote energy efficiency and innovation under the Global Gateway umbrella. Examples include EU investments supporting a fair green transition for LAC economies, such as the EFSD+ LACIF blending facility supported ‘Global Gateway Renewable Hydrogen Funding Platform for Chile’, part of the Global Gateway flagship Promotion of Renewable Hydrogen (RH2) in Chile. This flagship is endowed with over EUR 200 million and with a projected total investment of more than EUR 1.25 billion, signed with the EIB and KfW (the German Development Bank) in 2023 and designed to channel private sector funding to the first renewable hydrogen projects at industrial scale in Chile. Other examples are electricity interconnection projects among LAC countries (e.g., Ecuador, Peru), development of the lithium value chain in Argentina and Bolivia, and support to deforestation-free agricultural production in Brazil and in Costa Rica, where the EU is prepared to support, under a TEI, the promotion of public electrical transport and a solid plan for the management of the equipment, operations, services and technology.

Sustainable growth and jobs

Partnerships on Critical Raw Materials (CRM) were concluded in 2023 with Argentina and Chile. Various actions including high level missions to the three sub-regions, business missions to Argentina and Bolivia and an economic mission to Guyana in 2023 contributed to start implementing the EU-LAC Global Gateway Investment Agenda in the different countries and consolidating a partnership that encompasses cooperation, investment and trade.

The private sector is essential for the GGIA. AL-INVEST has been the regional spearhead of EU cooperation in this area over the last 30 years. Currently, AL-INVEST Verde (EU-LA Alliance for Sustainable Growth and Jobs) has a stronger focus on sustainability and the green agenda. It has continued to support LAC's public and private sectors, especially MSMEs, and reinforcing Intellectual Property Rights (IPR), through, for example, providing grants to MSMEs (to support deforestation-free sustainable value chains of the agri-food sector and promoting the low carbon and circular economy) as well as technical assistance to the public sector on the EU Deforestation Regulation (traceability systems for deforestation-free value chains of coffee, soya, beef and leather in Brazil and Argentina).

In addition to raising public awareness and providing specialised training for the judiciary and customs systems, AL-INVEST has continued developing during 2023 the new concept of ‘mentorships’, aiming at supporting some LAC countries to prepare new Geographical Indications (GIs) and trademarks, fostering the transfer of green technologies and adding economic value to local sustainable value chains.

In November 2023, a new edition of AL-INVEST was approved (AL-INVEST Next), to continue delivering in these key priority areas and, in addition, to take over other key actions previously undertaken by the Foreign Policy Instrument (FPI), such as market access, sustainable value chains on critical raw materials and responsible business conduct (RBC).

Under the EFSD+ LACIF blending facility, the programme ‘Implementation of the NDCs in the Urban Mobility Sector in LAC’, signed in 2023, will promote sustainable transport in Argentina, Brazil, Bolivia, Colombia, Ecuador, Mexico, and Panama. It aims to improve public urban mobility and non-motorised systems (walking and cycling), to assist each country in achieving its Nationally Determined Contributions (NDCs) to the Paris Agreement, lowering greenhouse gas emissions and mitigating climate change impacts.

Regional EFSD+ LACIF initiatives such as the Triple Bottom Line Inclusive Finance (TIF) continued delivering during 2023 with EUR 59.4 million of total investments that are bringing together the tools, actors and financing necessary to improve access to finance for low-income populations and small and medium-sized enterprises, whilst reducing climate risk and vulnerability, especially in the case of smallholder farmers.

Digitalisation, science, technology and innovation

The EU-LAC Digital Alliance programme (EUR 50 million) was launched in spring 2023 with an opening event in the presence of the European Commission’s Vice-President Vestager in Colombia. The Digital Alliance adopted a EU-LAC Joint Declaration (EU and 20 LAC countries) during the EU-CELAC summit in July 2023. The Digital Alliance programme has a central policy component establishing policy dialogues between EU and LAC covering artificial intelligence, cybersecurity, connectivity, digital government and data governance. A special focus is put on central America with ad-hoc policy dialogues.

Another part of the programme concerns, under the Global Gateway flagship ‘Digital’, the expansion of the BELLA cable infrastructure to Central America through the BELLA II grant. On the occasion of the Digital Alliance Days in November 2023, Colombia announced its decision to connect to the BELLA cable.

Another large regional infrastructure investment consists of the creation of two Copernicus satellite earth observation centres. The first will emerge from the expansion of a national centre in Chile to provide services to the entire region in the areas of land and marine observation. The second Copernicus centre will be created from scratch in Panama and will focus on disaster resilience and preparedness.

The Digital Alliance has also a private sector component with the provision of acceleration services granted to successful partnerships between start-ups and larger companies from EU and LAC. These joint ventures will cover a number of areas, starting with smart production in 2023 and clean technology in 2024. An example for investment programmes at bilateral level supporting a fair digital transition is the EU support provided to Colombia to connect 85 % of the population to the internet. This support focuses specially on reaching the most remote areas of Colombia, which would be difficult for the private sector to cover without public funds, as well as those where a stronger presence of the state will be conducive to the peace efforts undertaken by Colombia.

Migration and forced displacement

The Commission has been active in supporting LAC countries in dealing with the effects of Venezuelan migration to neighbouring countries. For instance, a new EUR 10 million action adopted in 2023 for Colombia will help the socio-economic integration of Venezuelan migrants in Colombia in coherence with the national policy. In March 2023, Canada and the European Union co-hosted the International Conference in Solidarity with Venezuelan Refugees and Migrants. The event aimed to maintain the visibility of this crisis, and to continue to support host countries in the Latin America and Caribbean region that are undertaking significant efforts to welcome and integrate Venezuelan refugees and migrants.

Governance, peace and security (and conflict prevention)

EU support to peace has continued during 2023. A Team Europe Initiative provides support to Colombia’s ‘Total Peace’ policy, and includes a budget support operation ‘Contributing to the implementation of the Peace Agreement by supporting the Social and Economic Reincorporation of former FARC-EP members in Colombia'. The EU supports the enhancement of the technical skills of 1 638 ex-FARC members, of which 39 % were women, through an EU budget support operation. As a result, since 2019, a cumulative total of 7 525 persons in reincorporation are reported to have access to formal education through either the public system or a form of vocational training (individuals may have taken more than one course). Of these, 13 % refer to primary education and 84 % to secondary education and the remaining 3 % to higher education. These persons benefitted from vocational training programmes, improving their skills and competences to conduct income generating activities. In addition, 1 646 people in the process of reincorporation have been granted secured access to land in 2022. Access to education and land are crucial elements for a successful reintegration process.

EU Regional security programmes with LAC partners (EL PAcCTO on transnational organised crime, COPOLAD on the fight against drugs, and EUROFRONT on border management) continued to deliver during 2023 on their key role in underpinning bi-regional cooperation in the field of justice and security. The new EL PAcCTO 2.0 programme (EUR 58.8 million) started running from November 2023. The new programme is aligned with the New Agenda for Relations between the EU and LAC, the TEI on Justice and Security with LAC, and the EU strategy to tackle Organised Crime for the period 2021-2025.

Food security and nutrition

The budget support operation in Honduras ‘Increasing Food Security and Nutrition (FSN) investment at municipal level’ contributed to an increase in FSN municipal investments of 63 % in 2021 and 80 % in 2022 (compared to 2018 levels), by leveraging public local investments in water and sanitation, hygiene, natural resources, food assistance, land tenure, agriculture, entrepreneurship, and health sectors. During 2023, the EU supported the allocation of EUR 18 750 to each municipality to fund agriculture and entrepreneurship initiatives for the inclusion of the most vulnerable population (5.65 % exclusively for women groups) and improve availability and access to food. During 2023, the population trained and certified under a competency-based training model increased from 4 000 to 22 042 persons.

Case Studies

4.3.1.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

The situation in Latin America and the Caribbean continued to be marked in 2023 by several overlapping complex emergencies, including the internal and regional impact of the crisis in Venezuela, the humanitarian consequences of the armed conflict in Colombia as well as the pervasive violence in Haiti, Central America, Mexico and Ecuador. In addition, the LAC region registered growing numbers of people affected by extreme natural events (which are more frequent due to climate change), growing displacement and migration, increasing poverty and socio-economic instability. Furthermore, in 2023 the region suffered the impacts of the climate-related phenomenon El Niño, including higher food insecurity. In total, the EU allocated EUR 152.8 million on humanitarian aid in 2023 to the region.

Despite hopes for improvements, in 2023, Venezuela’s socio-economic and political crisis worsened with severe humanitarian consequences for 20.1 million people. Since the beginning of the crisis, more than 7.7 million people have left the country. In 2023, the EU allocated EUR 75 million to the crisis and continued to provide integrated protection and humanitarian assistance to the most vulnerable groups, inside Venezuela and in the region, across all relevant sectors. To offer more visibility to this crisis and its regional dimension, in March 2023, the European Commission co-organised with Canada a Solidarity Conference with refugees and migrants from Venezuela. The European Commission continued its efforts to improve operating conditions and access for humanitarian actors through donor coordination and the Commission services-facilitated Humanitarian Aid Working Group of the International Contact Group.

The humanitarian situation in Colombia remained alarming in 2023 due to the persisting internal conflict, compounded by the impact of more than 2.5 million Venezuelan migrants and refugees in the country. Border areas with Venezuela and the Pacific coast have been particularly affected by widespread violence. In Colombia, the EU allocated EUR 28.7 million to, amongst others, assist victims of the armed conflict and climate-related disasters and to respond to the Venezuelan and transcontinental mixed migration crisis.

In South America, the EU also supported communities affected by climate-related events (such as flooding and drought) through both emergency assistance and disaster preparedness actions to strengthen national and local capacities.

In 2023, the Central America region continued to bear the effects of high exposure to natural hazards and epidemics, endemic poverty as well as complex socio-economic and political situations and social unrest. In 2023, 9.3 million people in Guatemala, Honduras and El Salvador needed humanitarian assistance, with main drivers being increased internal displacement (around 1 million people affected), human rights violations, impacts of natural hazards and the weather phenomenon El Niño aggravating food insecurity in the sub-region, and increasing transcontinental and extra-continental population movements. For example, the number of people transiting through the Darien Gap in Panama increased dramatically during 2023 with more than 500 000 persons reported, doubling the number of 2022. In 2023, the EU’s response of EUR 24.95 million focused on addressing the critical needs of the most vulnerable: People on the move, victims and survivors of violence, including organised crime, notably women and children, through protection and relief assistance, provision of food assistance and short to medium-term livelihood recovery and protection, and multi-sectoral approaches incorporating disaster preparedness to improve capacities for rapid response and early action. Further, the EU provided emergency assistance in the aftermath of Hurricane Otis in Mexico.

4.3.1.4.    Crisis response and preparedness

In Latin America, the EU renewed its support to confidence building, mediation and dialogue in the border zone of Belize and Guatemala. In Venezuela, the EU launched a new crisis response action to support confidence building and community outreach activities in targeted areas of Venezuela. The EU has continued supporting Ecuador to address the penitentiary crisis as well as the socio-environmental conflicts in the country, especially linked to illegal exploitation of natural resources. In addition, three new Financing Decisions were adopted to preserve civil space in Central America, support peace consolidation in Colombia, and strengthen security coordination through a new ‘Fusion Centre’ in Ecuador.

Support was also provided to develop the Latin America and Caribbean Cyber Competence Centre (LAC4) as a regional hub for cyber capacity building including mapping of ongoing initiatives( 83 ).

Through the Organisation of American States (OAS) the EU contributes to countering the illicit proliferation and trafficking of small arms and light weapons and their ammunition, and at mitigating their impact in Latin America and the Caribbean. This is done in the framework of the EU Strategy against Illicit Firearms, Small Arms & Light Weapons and their Ammunition: ‘Securing Arms, Protecting Citizens’. The EU is also actively contributing to strengthening biological safety and security in Latin America in line with the implementation of United Nations Security Council Resolution 1540 (2004)( 84 ).

The EU’s Global Illicit Flows Programme (GIFP) flagship initiative continued to support partner countries’ law enforcement and criminal justice authorities in their efforts to tackle transnational organised crime, be it in relation to narcotics, illicit arms trafficking, wildlife crime or illicit financial flows. A substantive example is the Trigger VI action led by Interpol in cooperation with United Nations Office on Drugs and Crime (UNODC) in 13 South American countries, which led to the recovery of around 200 000 illicit firearms, ammunition and explosives, the arrest of almost 4 000 individuals and the destruction of 27 cocaine labs. Additional operational cooperation with Latin America is done through EMPACT firearms and the El PAcCTO project.

4.3.2.    The Caribbean

4.3.2.1.    Introduction (policy developments)

2023 was a very meaningful year for the EU-Caribbean relations. The election of Saint Vincent and the Grenadines as CELAC Presidency Pro Tempore in January was a good start for raising the profile of the Caribbean in the relaunch of the wider EU-CELAC relations. The EU hosted a dedicated EU-Caribbean Leaders’ Meeting on 17 July, before the opening of the Summit. It was the only such sub-regional meeting, and a recognition of the Caribbean as a distinct group that deserves the EU’s special attention. The increased momentum for the EU-Caribbean partnership was further advanced by continued high-level engagement throughout the year, including bilateral meetings of the EU Presidents with Caribbean leaders, and a visit of then EVP Timmermans to the sub-region. The HRVP was in Cuba in May for the EU-Cuba Joint Council in the framework of the Political Dialogue and Cooperation Agreement (PDCA), which offers the framework for a constructive but critical engagement with the country. In November, the EUSR for HR Gilmore also visited Havana to hold a very meaningful 4th Political Dialogue on Human Rights under the Agreement.

The EU and its Member States and a majority of the Organisation of African, Caribbean and Pacific States (OACPS) signed the Samoa Agreement on 15 November in Apia. However, by the end of 2023, a number of OACPS countries had still not signed it, and hence did not take part in its provisional application starting on 1 January 2024. The Caribbean protocol of the Agreement, tailored to the sub-region's needs and dynamics, will allow for an unprecedented regional focus, with its own specific governance.

The EU maintained cooperation efforts with the Caribbean in the framework of three partnerships, designed to address the region’s multifaceted vulnerabilities: Green Deal, Economic Resilience and Trade, and Governance, Security and Human Development. The partnerships are being animated via a ‘Team Europe’ approach, and will be further implemented through the Global Gateway EU-LAC Investment Agenda launched at the EU-CELAC Summit. A separate case is Haiti, the largest recipient of EU assistance in the region, which is still engulfed in a deep and multifaceted crisis (with impact on the wider region), for which EU efforts focus on a humanitarian-development-peace nexus approach.

4.3.2.2.    Implementation

Human development and inequalities

In the wake of COVID-19, some projects funded by EFSD+ LACIF have focused on preventing and mitigating the impact on the most vulnerable population groups. In 2023, a health blending operation started to transform the Queen Elizabeth Hospital in Barbados, which supports the government’s programme to enhance the competitiveness of public services in health. This project is starting to benefit 45 000 patients, with EUR 43 million of EU contributions and IDB loans.

In addition, in 2023 the IDB-led ‘Programme to support the health system strengthening of the Bahamas’ was signed. This programme will enhance the capacity of primary health care and deliver accessible and high-quality services to the Bahamas population, by facilitating access and improving services for approximately 70 000 people.

The EU is also a partner of the Caribbean Public Health Agency (CARPHA). The European Commission mobilised support and EU Member States expertise in 2023 to carry out a health needs assessment for Caribbean countries under the Caribbean Cooperation Facility as well as to support their regulatory frameworks. At country level, in 2023 health-related projects were in preparation, notably in Mexico and Cuba. Furthermore, in October 2023, a TAIEX Regional Workshop on EU-Caribbean Regulatory Systems for Health Products was organised by the Commission and gathered key stakeholders such as regulatory authorities in Caribbean and EU Member States, the European Medicines Agency, and global actors such as PAHO/WHO, to focus on reinforcing regulatory capacity in the Caribbean, improving regional quality and monitoring of health products, and providing a better regulatory framework for local production.

Green Deal

Under the Global Gateway flagship Climate and Energy, the Global Green Bond Initiative envisages support to creating an enabling environment for the issuance of Green Bonds in the Dominican Republic, an action which is also part of the national TEI ‘Dominican Republic Green and Sustainable Transition’ on sustainable finance. Further, the Green Bonds GGIA infrastructure investment opportunity supports the development of the green bond market in Costa Rica, Colombia, Dominican Republic and Peru to mobilise capital for financing the sustainable transition and access to finance.

EFSD+ LACIF is enabling potential investment in the Caribbean to promote climate resilience, improve public health, support environmental protection and healthy oceans. Under the Caribbean Sustainable Water Management and Clean Oceans Programme, the EIB in collaboration with other development financial institutions is building a project pipeline focused on sustainable water resource management, wastewater treatment, storm water management and solid waste management in several Caribbean countries.

Sustainable growth and jobs

The EFSD+ LACIF blending facility also provides financial support to projects that address critical needs in the banking and financial services sector in LAC (e.g., technological infrastructure, digital banking solutions, and robust financial systems) to improve accessibility and inclusivity, particularly for underserved communities. The EUR 54 million project ‘Greening the Caribbean Financial System’ was signed in 2023, bringing investment grants and additional funding with a gender focus to reduce greenhouse gas emission, increase climate resilience and reduce social vulnerabilities.

Digitalisation, science, technology and innovation

During the EU-LAC Digital Alliance Days in Cartagena, Colombia in November 2023, it was agreed to open a specific policy discussion with the Caribbean countries. In particular, it was agreed to develop by June 2024 a Toolbox supporting the legal and regulatory needs in the Digital Alliance policy areas.

In Jamaica progress continued during 2023 on the EU's initiative supporting inclusive access to digital technology in education and MSMEs. In the Dominican Republic, the LAC Cyber Competence Centre continued during 2023 to providing training in cybersecurity for civil servants of all LAC countries.

The LACIF blending operations with the IDB in Barbados and Bahamas also target actions on connectivity and digitalisation to enhance the efficiency of delivering digital services, aiming at improving patient care and increase sanitary staff satisfaction.

Governance, peace and security (and conflict prevention)

EU LAC Regional programmes EL PAcCTO (transnational organised crime), COPOLAD (fight against drugs) and EUROFRONT (border management), continued to play a key role in underpinning the bi-regional cooperation in the field of justice and security. The third EU-CELAC Summit reinforced the commitment of both regions to strengthen cooperation initiatives in the field of citizen security and social justice, by further enhancing the EU-LAC Partnership on Justice and Security. In this context, the new EL PAcCTO 2.0 programme (EUR 58.8 million), approved by end 2022, started running from November 2023 until December 2027 and now, for the first time, has expanded its work also to the Caribbean.

Case study

4.3.2.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

Haiti

5.2 million Haitians were in a dire humanitarian situation in 2023, of which 1.9 million were in need of protection. Gang violence expanded from the capital Port au Prince to other departments, in particular to the Artibonita. The number of people facing acute hunger in the country has more than doubled in the last several years, reaching 4.9 million in 2023. 220 000 people are internally displaced, most of them living in spontaneous sites without access to basic services such as food, potable water and health or education services. Against this background, the EU has mobilised EUR 18.5 million in 2023 to mitigate the acute food insecurity and malnutrition in the country, to assist and protect victims of violence, to respond to the cholera outbreak, and to support education in emergencies. The EU also invested EUR 2 million in disaster preparedness in a country which is particularly exposed to multiple sudden onset natural and climatic disasters.

The wider Caribbean

In the Caribbean, 45 million people – representing the entire population – are highly exposed to natural hazards, including stronger tropical storms, hurricanes, earthquakes, longer lasting droughts, and volcanic eruptions, now aggravated by the effects of climate change. Furthermore, the high dependence on imports of fuel, food and inputs for the agricultural sector, the effects of the post-COVID-19 crisis, and the conflict in Ukraine have had a significant impact on both the availability of certain foodstuffs and their prices and affect the levels of hunger and malnutrition. In response, at the end of 2023, the EU mobilised EUR 3 million that have been used mainly to strengthen vulnerable populations’ food security and nutrition in the Dominican Republic.

In 2023, the EU has remained engaged to support resilience and disaster preparedness in the subregion for a total of EUR 4 million. The overall objective has been to support Regional, National and Local Disaster Risk Management organisations as well as to strengthen vulnerable communities’ preparedness and resilience in a subregion that is highly exposed to multiple sudden onset natural and climatic hazards.

4.3.2.4.    Crisis response and preparedness

In the Caribbean, the EU continued its engagement with the local civil society to cultivate leadership for community mediation and peacebuilding in vulnerable communities in Haiti under the NDICI-Global Europe thematic programme for Peace, Stability and Conflict Prevention. In addition, a new action is under preparation to address the exploitation and/or management of natural resources in the Latin America and the Caribbean region.

The ‘Operation Caribe’ facilitated enhanced information sharing and coordinated rummage activities of Joint Maritime Control Units (JMCUs) on targeted vessels in the Caribbean region. This operation aimed to intensify law enforcement while evaluating the strength and capacity of SEACOP’s Maritime Intelligence Units (MIUs) in real-time information sharing.

4.4.    European Neighbourhood 

4.4.1.    European Neighbourhood East 

4.4.1.1.    Introduction (policy developments)

In the Eastern Neighbourhood (Armenia, Azerbaijan, Georgia, the Republic of Moldova (hereinafter Moldova), Ukraine, and Belarus), 2023 continued to be dominated by Russia’s war of aggression against Ukraine on the one hand, and the deepening of EU’s relations with several eastern partner countries on the other hand. This culminated in the decision by the European Council in December 2023 to open accession negotiations with Ukraine and Moldova, and grant Georgia the status of candidate country. Consequently, the EU’s relations with these countries are entering a new phase, guided by the EU’s enlargement policy.

However, 2023 was also marked by Azerbaijan’s military operation in Nagorno-Karabakh in September, indicating that further destabilisation in the region remains a possibility, while underscoring the need for the EU’s continued engagement in the region. The EU demonstrated commitment to promoting security, stability, and peace in the region, including through the normalisation process, facilitated by the President of the European Council. In addition, the EU expressed readiness to deepen and strengthen relations with Armenia in all its dimensions, as mandated by the European Council. At the same time the EU also pursued cooperation with Azerbaijan. With regard to Belarus, the EU continued supporting the people of Belarus and its civil society, and their aspirations for a democratic and sovereign Belarus.

The Annual Eastern Partnership (EaP) Foreign Affairs Ministerial meeting in December 2023 reaffirmed that the current ‘recovery, resilience and reform’ agenda for the EaP remains valid and that the EaP remains an important vehicle for regional cooperation based on a more flexible and streamlined approach. In 2023, the EaP framework continued to deliver support tailored to the needs of each partner, supporting those on the enlargement path, and strengthening cooperation with others in areas of mutual interest. Strengthening resilience, promotion of the rule of law, gender equality and respect for human rights remained the foundations for this cooperation. Looking forward, the new political context has paved the way for renewed efforts to strengthen links with Central Asia and the Black Sea region, notably in the area of connectivity (transport, energy, and digital), as well as Western Balkans on the enlargement dimension.

The Economic and Investment Plan for the Eastern Partnership remains the key instrument in this respect and has already mobilised EUR 7.5 billion in investments (as of 1 December 2023). The five long-term policy objectives in key priority areas are: economy and connectivity; rule of law and security; environment and climate; digital; and fair and inclusive societies. The EU's support to EaP countries continued to reflect its conditionality and incentive-based approach upon the implementation of agreed structural reforms.

The EU continued cooperation with Armenia on its ambitious reform agenda and the implementation of the EU-Armenia Comprehensive and Enhanced Partnership Agreement. There is shared ambition to increase cooperation through the launch of a new Partnership Agenda, which would focus on stepping up investments, boosting security and defence cooperation, and strengthening sectoral cooperation. The EU assistance focused on supporting the socio-economic recovery of the southern region in Armenia, in particular Syunik, as the region most affected by the 2020 war. Under the 2022 Annual Action Plan, the EU continues its budget support to justice reform and put in place a budget support programme dedicated to education. Support to boosting climate resilience and sustainable energy solutions was also undertaken. The implementation of the EIP continued, with progress on most flagship projects. The EU has provided EUR 17.65 million in humanitarian assistance and EUR 15 million in budget support since September 2023 to assist efforts by the Armenian authorities to host around 100 000 Karabakh Armenians.

In a context of increasing restrictions to fundamental freedoms, especially in the second half of the year, the EU continued to keep the rule of law and respect for human rights at the core of its dialogue with Azerbaijan. As such, the EU continued to promote governance reforms and remained the largest donor to civil society in the country. The EU has addressed relevant concerns with the authorities in official fora, such as the annual Sub-Committee on Justice, Freedom, Security and Human Rights and Democracy held in May in Brussels. The Annual Action Programme (AAP) for 2023 includes support for energy efficiency and renewable energy, criminal justice reform, and a flexible facility for a stronger economy and structural reforms to create a better business environment and investment climate.

The EU has also played a central role in facilitating the Azerbaijan-Armenia peace talks, demonstrating its commitment to a peaceful and prosperous South Caucasus. In this context, a new full-fledged civilian EU Mission to Armenia (EUMA) was launched in February 2023, with a two-year mandate. The mission is tasked to observe and report on the situation on the ground, contribute to human security in conflict-affected areas, and contribute to building confidence. The Council decided to strengthen the mission in December 2023, by increasing its presence on the ground from 138 staff to 209.

In Belarus, the rampant repression of all segments of Belarusian society continued. Human rights organisations refer to more than 30 laws and orders amended in 2023 to legalise the repression. This includes areas affecting the freedom of conscience or religion, media, employment, and holding specific positions in state bodies, and national minorities. The trend also includes the legislative strengthening of the security sector. There are still around 1 500 political prisoners in detention, subjected to torture and ill treatment. At least five have lost their lives since 2021. Many have been held incommunicado for months. In September, the regime adopted a decree restricting the delivery of passports and other consular services to Belarusians abroad. This was done with the clear intention to target people who have left the country and to make their status even more vulnerable. The majority of the democratic opposition, activists and independent journalists remain in exile. Lukashenka has made Belarus an accomplice of Russia's war of aggression against Ukraine by putting its territory and infrastructure at the disposal of the Russian troops from day one of the war. The EU has replied with a united and strong condemnation, and adopted a seventh package of sanctions in August. At the same time, the EU continued to provide sustained support to civil society, victims of the repression, independent media and defenders of human rights and democracy. A new Special Measure 2023 was adopted in December to support civil society in Belarus bringing the total support to the people of Belarus to over EUR 140 million since August 2020.

The European Council granted Georgia the status of candidate country in December 2023, based on the European Commission recommendations and on the understanding that nine steps specified in the Commission’s enlargement report are taken. These nine reform priorities are now the guiding framework for Georgia’s next steps on the EU accession path. 2023 was marked by political polarisation, not only among political actors, but also at society and community level. Georgia continued to implement successfully sectoral reforms in particular those linked to the Deep and Comprehensive Free Trade Area (DCFTA). The most pressing challenges were related to the judicial reform, de-oligarchisation, electoral legislation, independence of State institutions, freedom of media, expression and assembly. The assistance planned in 2023 (total of EUR 85 million) took into account the geostrategic challenges that Georgia faces. The package focuses in particular on balanced territorial and human capital development, as well as energy diversification to accelerate the implementation of the Economic and Investment Plan. Another strand of this assistance aims at enhancing Georgia’s resilience and capacity to address national security threats, including hybrid threats, critical infrastructure protection, cybersecurity legislative frameworks and disinformation. The country also benefitted from EUR 30 million under the European Peace Facility (EPF) to modernise its defence sector (adding to the previous EUR 32 million assistance measure in 2022 and 2021).

In Moldova, the positive momentum for structural reforms has continued, culminating with the European Council's decision in December 2023 to open accession negotiations. In particular, the European Commission, in its enlargement report, recommended that Moldova take further measures in the areas of comprehensive justice reform, the fight against corruption, and de-oligarchisation to consolidate the progress achieved thus far. In 2023, Moldova continued sectoral reforms to fully exploit the EU-Moldova Association Agreement, including the Deep and Comprehensive Free Trade Agreement (DCFTA), and joined several EU programmes. While the pressure from the refugee crisis has lessened and crucial reforms have stabilised the country’s energy sector with the help of EU support, Moldova continued to face the spillover effects of Russia’s war of aggression against Ukraine. The country has remained a target of pervasive hybrid actions by Russia and its proxies, notably through cyber-attacks, foreign information manipulation and interference, including disinformation, aimed at obstructing democratic processes in the country. In 2023, the EU-Moldova cooperation on security and defence matters exponentially increased. The EU launched the EU Partnership Mission in the Republic of Moldova (EUPM Moldova) under the Common Security and Defence Policy to enhance the resilience of the security sector. In addition, the EU established a dedicated sanctions regime and adopted a corresponding listing against those seeking to destabilise Moldova. The country has continued benefitting from a significant assistance measure under the European Peace Facility (EPF), which amounted to EUR 40 million for 2023. Through its Autonomous Trade Measures, the EU has supported Moldova’s economy by ensuring duty-free and quota-free treatment for its exports. In June 2023, the EU presented a comprehensive package of support for Moldova to address the impact of Russia's war of aggression against Ukraine and to bring the country closer to the EU. Moldova has also benefited from the ongoing Macro-Financial Assistance operation worth a total of up to EUR 295 million.

Throughout 2023, the European Union increased its political, military, financial, humanitarian, legal and diplomatic support to Ukraine and the Ukrainian people. By the end of 2023, EU’s support amounted to EUR 88 billion. This included an EUR 18 billion package of macro-financial assistance for 2023, making the EU the major source for Ukraine budget funding that year. Furthermore, preparations were made to set up a EUR 50 billion Ukraine Facility for the years 2024-2027, which was adopted in 2024. EU Member States’ military support amounted to EUR 28 billion of which EUR 6.1 billion was via the EPF. The EU also continued to support the Ukrainian security sector, inter alia through the civilian EU Advisory Mission (EUAM Ukraine) and continued training Ukrainian soldiers via the EU Military Assistance Mission (EUMAM). By end 2023, close to 40 000 soldiers had undergone training. Crisis response measures also supported mine action, early recovery and support to social cohesion contributing to human security and resilience. In December 2023, the European Council took the decision to open accession negotiations with Ukraine, in line with Commission’s recommendation. In parallel, the EU and Ukraine further strengthened EU-Ukraine relations through exploiting fully the potential of the EU-Ukraine Association Agreement including the Deep and Comprehensive Free Trade Agreement (DCFTA). The EU continued and further intensified diplomatic outreach to third countries in support of Ukraine and on Ukraine’s Peace Formula, as the only framework for a just and sustainable peace, and as instructed by the June European Council, the EU started discussions with Ukraine on the future EU security commitments in November 2023, with a view to a conclusion in 2024.

A unique type of support to the Eastern Partnership is done through the territorial cooperation programmes INTERREG where Ukraine, Moldova, Georgia and Armenia participate on equal footing with Member States to support jointly developed projects. These projects cover social and economic development of local communities, for enhanced cooperation between public authorities and for a safer Europe and its neighbours through, for example, border crossing infrastructure, mobility, and migration management.

4.4.1.2.    Support to Ukraine

Russia’s war of aggression against Ukraine continued to cause unprecedented human suffering and destruction of physical infrastructure. The EU stepped up its engagement with Ukraine in all fields. The first ever Ukraine government to European Commission meeting took place in February 2023, just before the EU-Ukraine Summit, which underscored the EU’s unwavering broad support and dedication to enhance Ukraine’s integration with the EU.

Throughout 2023, the EU increased political, military, financial, legal and humanitarian and assistance support to Ukraine. By the end of 2023, the EU had provided EUR 88 billion to Ukraine and its people. This amount encompassed over EUR 25 billion of macro-financial assistance loans, accompanied by reforms, to keep the Ukrainian state afloat with regular disbursements, and EUR 28 billion of military support from EU Member States, including via the EPF. The EU also continued to support the Ukrainian security sector, inter alia through the civilian EU Advisory Mission (EUAM Ukraine) and continued training Ukrainian soldiers via the EU Military Assistance Mission (EUMAM). By end 2023, close to 40 000 soldiers had undergone training. Crisis response measures also supported mine action, early recovery and support to social cohesion contributing to human security and resilience.

The EU also ensured duty-free and quota-free treatment for Ukrainian exports with Autonomous Trade Measures, supporting Ukraine’s economy to the tune of EUR 2 billion in additional export revenue.

The historic decision taken by EU leaders in December 2023 to open accession negotiations with Ukraine is a major milestone in EU-Ukraine relations and for future EU support to the country. EU assistance played a pivotal role in helping Ukraine to advance on its ambitious reform path. EU Flagship programmes on judicial reform, the fight against corruption, public finance management, digital transformation and decentralisation reform continued to deliver high-level policy advice and capacity building support across key reform areas, which will remain essential with the upcoming accession negotiations.

The EU has continued to support public administration reform and enhancing the qualifications of civil servants, supporting the development of the Law on Administrative Procedures, which entered into force in December 2023, and training more than 10 000 officials on new procedures. As of end December 2023, 5 700 civil servants had registered to the e-learning platform to follow 16 e-learning courses developed by the College of Europe in Natolin (Poland) in cooperation with the National Agency of Ukraine on Civil Service to increase Ukrainian civil servants’ understanding of EU affairs and acquis.

With Russia’s full-scale war of aggression against Ukraine continuing and bringing massive destruction to the country, EU assistance is implemented under extremely challenging conditions. In order to facilitate the fast recovery of damaged critical infrastructure, two actions with a combined budget of EUR 624 million were approved in 2023, including a EUR 250 million state building contract (budget support) to support quick repairs of critical infrastructure, recovery and to help small farmers to enhance food security.

More than 32 million LED bulbs were distributed to the population and relevant public institutions via the exchange programme for incandescent lamps launched by the government and Ukrposhta. The campaign in particular targeted pensioners and citizens in smaller towns and remote areas, in an effort to enhance energy efficiency and reduce electricity consumption.

The EU4Recovery programme, covering 10 regions in the east and south of Ukraine, focused on building local capacity and restoring service delivery in front-line and war-affected communities and regions. The supply of essential equipment to the State Emergency Services in response to the Kakhovka dam crisis allowed their units to work more effectively in affected areas to monitor and prevent potential environmental threats. The EU4Resilient Regions programme established modular housing for 250 internally displaced persons (IDPs) in the Chernivtsi region.

EU provided vital support for Ukraine’s digital state, which has been one of the symbols of Ukraine’s resilience during the Russian war of aggression. The EU support has enabled Ukrainian government to step up the provision of digital services, collecting electronic evidence for persecution of international crimes and enhancing cybersecurity.

Russia’s war of aggression in Ukraine resulted in a health emergency, to which the EU provided immediate response by repurposing nearly EUR 36 million for civil protection and urgent medical supplies. Commission services also supported the purchase of 100 school buses for Ukraine for children to be able to safely return to school. This contributed to the ‘School buses for Ukraine’ EU Solidarity Campaign launched by Commission President Ursula von der Leyen and the First Lady of Ukraine, Olena Zelenska. On 4 November 2023, the Commission President officially handed over the school buses to Ukrainian local authorities during a ceremony held in Kyiv.

Significant support was also provided to Ukraine in the framework of the international actions of the Erasmus+ programme, financed through the External Action Instruments. In 2023, Erasmus+ financed more than 3 500 mobility opportunities for Ukrainian higher education students and academic staff to come to Europe.

4.4.1.3. Implementation

During 2023, EUR 319.75 million in budgetary credits were committed in bilateral and incentive-based funding. This includes bilateral contributions to the Neighbourhood and Investment Programme (NIP) and the Civil Society Facility, but excludes Ukraine bilateral contributions and a EUR 20 million transfer from the incentive envelope to the NIP. These funds were utilised to support the activities described below.

Human Development

Supporting civil society, independent media, youth participation in democracy, people-to-people contacts, gender equality and health resilience are core goals of the regional and bilateral financial assistance.

In 2023, the implementation of the regional EU4Culture project continued in all six Eastern Partnership (EaP) countries. The EU4Culture project takes an inter-regional approach to promote intercultural dialogue and knowledge exchange and contributes to improving local governance in the culture sector through support for regulatory processes and participative policy dialogue.

EU4Youth phase IV was launched and aims to build capacities of national youth councils and other representative youth structures as well as Youth Ministries, youth departments and agencies to jointly implement more structured youth dialogue. This phase foresees a small-scale grants scheme to engage youth organisations and young people from remote areas and connect them with peers in partner countries and EU Member States.

At the end of 2023, a new regional project which will advocate for the necessary education reforms and strengthen the quality of the education systems of the EaP countries, was agreed. The construction of the ‘School of Europe, Tbilisi’ is ongoing with the school scheduled to be officially opened in September 2024.

The Ministries of Health in the EaP countries have continued to benefit from a EUR 42 million regional programme implemented by the World Health Organisation. The support now provided, builds on the response to the COVID-19 pandemic to strengthen routine immunisation in the EaP countries. It provides technical and operational assistance to respond to measles outbreaks while tailoring immunisation services to address inequality in vaccination, especially among vulnerable groups.

In Armenia, the EU continued to support the implementation of reforms aiming to improve labour market efficiency and employability with particular emphasis on agricultural employment, and improving the quality of science, technology, engineering, and mathematics (STEM) education. In addition to 23 ongoing projects, eight new grant projects with civil society organisations, including on emergency support to the displaced population, were signed.

In Azerbaijan, assistance for the modernisation and reform of the education system to meet the needs of the labour market and align with competency-based education standards, continued. Reforms in the education system, including vocational education and training (VET), remained one of the most supported sectors.

In light of the regime’s involvement in Russia’s war of aggression against Ukraine and in light of European Council Conclusions of February 2022, the EU has stopped engaging with Belarusian authorities and targets its support to the people of Belarus. Assistance to Belarusian students, both through support to an advanced training and learning programme and by supporting independent educational institutions, was provided.

In Georgia, implementation of the skills development and matching for labour market needs (Skills4Jobs) programme supporting the Skills Agency and improving VET continued.

In Moldova, the implementation of the National Education Strategy is ongoing in the framework of the Economic and Investment Plan’s flagship on investing in Moldova’s human capital and preventing ‘brain drain’, complementing Moldova’s membership of the Horizon Europe programme.

In 2023, EU expertise mobilised through the TAIEX instrument assisted Armenian authorities in improving job vacancy statistics and recommendations for job seekers. Furthermore, a TAIEX Multi-Country Workshop on 'Building Bridges for Youth Participation' took place in several countries. The workshop clarified the role of youth policy at EU, national and local level and recognised the role of public authorities in developing and implementing youth policies and dialogue.

Green Deal

The implementation of the Green Deal is a priority, and the regional programmes allocate 20 % of the overall budget to environmental and climate resilience. The importance of this priority is also echoed in the Economic and Investment Plan with around half of the planned investments supporting green objectives.

Several regional programmes are providing support for environmental and climate action, including EU4Environment, EU4Climate, and EU4Energy. These programmes are instrumental for facilitating policy reform and institution building in the partner countries.

The EU4Energy programme contributed to further strengthen legislative and regulatory frameworks as well as evidence-based policy design and promoted a conducive environment for sustainable energy investments. The programme supported Ukraine, Moldova and Georgia in accelerating the development of renewable energy legislation. The Council of European Energy Regulators continued work in Armenia and Azerbaijan on the development of liberalised gas markets and energy efficiency measures.

In December the EU4Climate project that provided substantial support to the development of Nationally Determined Contributions and adaptation planning concluded. It will be succeeded by a new EU4ClimateResilience programme on Decarbonisation and Climate Resilience in the EaP.

In 2023, the implementation of the third phase of the Covenant of Mayors East (CoM East) programme focused on assisting local authorities with access to finance to implement their Sustainable Energy and Climate Action Plans. By the end of 2023, 518 municipalities, covering about 50 % of the population of the EaP region, had become signatories.

In Armenia, support is provided for renewable energy and energy efficiency in public buildings through the EIP. Other assistance is destined to provide continuing support to the Masrik-1 Solar Power Plant and to upgrade the Caucasus electricity transmission line. The EU4Sevan project continued to support water management and protection of Lake Sevan. Technical assistance has also been provided via Twinning for strengthening protection and sustainable use of biodiversity.

In Azerbaijan continued support for renewable energy and energy efficiency was included in the Annual Action Programme.

In Georgia, co-financing of two major energy projects was approved in 2023, laying the groundwork for future trade in clean energy across the Black Sea. The EU agreed to co-finance the Georgia energy transmission programme to upgrade the transmission and distribution networks. Co-finance for the rehabilitation of the Enguri hydropower plant was also agreed.

Moldova has taken important steps to cut its dependence on Russian gas and continued to benefit from its connection to ENTSO-E, the continental European electricity system. An EU budget support programme has supported the authorities in these efforts through mitigating the impact of high energy prices for the most vulnerable households and promoting energy efficiency initiatives.

TAIEX advanced the European Green Deal through a flagship workshop on biodiversity policy targeting all partner countries. Tailor-made events also shared best EU practice in the fields of energy efficiency, sustainable transport, waste management, carbon pricing and water management.

Through Twinning, a project with Czechia and Finland to support Armenia in enhancing biodiversity protection came to an end in 2023. A twinning project in Azerbaijan to strengthen hydrometeorological and climate services with Finnish, French and Lithuanian institutions in a consortium, is ongoing.

Green Deal Success Story

Sustainable Energy Week (SEW) 2023 started on 20 June and became a successful and engaging event, emphasising youth and women's active participation. Overall, the SEW2023 garnered significant media attention in all four countries (Armenia, Georgia, Moldova, and Ukraine) with 213 publications in national media outlets and on social media platforms, reaching an audience of over 200 000 people. Overall, in the framework of SEW2023, over 200 events involving around 74 000 individuals, including representatives from various sectors, experts, and the general public were organised.

Sustainable Growth and Jobs

Throughout 2023, the roll-out of the EIP to support the EaP partners in their efforts to stabilise their economies at a time of unprecedented geopolitical turmoil continued. Since the launch of the EIP in 2021, EUR 8.5 billion of investments have been leveraged. The support provided has continued to contribute to improving the investment and business environment, addressing gaps in access to finance and financial infrastructure and supporting economic integration and closer trade ties. Support for the full implementation of DCFTAs and CEPA as well as other trade agreements, through cooperation programmes and participation in political dialogue continued. A new dedicated programme providing support to the intellectual property agencies in Ukraine, Moldova and Georgia was launched in 2023, together with European Union Intellectual Property Office.

In Armenia, support to small and medium-sized enterprises (SMEs) development and access to finance continued with investments under the EIP. The EU-Armenia SME Fund continued investing in solar power and agribusinesses, while the EU4Business project boosted tourism and tech startups. EU4IMPACT launched successful business incubation rounds, resulting in more than 100 new companies being created. The Advice for Small Business project has created over 1 100 jobs to date.

Supporting sustainable economic diversification of Azerbaijan remained an underlying objective of the EU’s assistance in this sector. In 2023, support for development, economic growth, competitiveness and employment generation in the rural regions of Azerbaijan, notably in the region of Lankaran continued. Implementation of the Economic and Investment Plan as well as support to enhancing capacity, greening and financial sustainability of local businesses is ongoing.

Phase II of the ‘Advice for Small Business in Belarus’ programme, signed in 2021, has been fully repurposed to provide advisory, technical and capacity-building assistance support to SMEs relocated abroad.

Supporting SMEs to reap the full benefits of the DCFTA in Georgia has been a top priority and is one of the EIP flagships. Through the EU4Business regional initiative, over 65 000 SMEs, corresponding to around 30 % of all active SMEs in the country, have been supported. In addition, a Twinning project ‘Strengthening Capacity of the Competition Agency of Georgia’ continued implementation with Lithuania.

Supporting SMEs in Moldova is one of the flagships of the EIP. In 2023, a grant to support entrepreneurship in Moldova, implemented by the Organisation for the Development of Entrepreneurship, was provided.

Digitalisation, Science, Technology and Innovation

In 2023, the EU scaled up its EU4Digital initiative with the aim of driving the EaP countries’ integration with the EU digital single market and promoting further investments under the EIP. The roll-out of secure and affordable broadband connectivity in rural areas and connecting more than 300 Research and Education Institutions with their EU counterparts, benefiting 730 000 students, teachers and scientists was supported. The EU4Digital facility launched an e-commerce accelerator benefiting 40 EaP SMEs as well as an online digital skills academy for thousands of SMEs’ staff to be trained on how to promote, register, sell and ship their products to the EU. The EU4Digital facility also implemented key pilot projects between Ukraine, Moldova and Romania in the fields of e-customs, including in support of the Solidarity Lanes initiative and as part of wider roadmaps to develop Digital Transport Corridors with the EU.

The process of bringing Ukraine and Moldova into the EU Roam Like at Home area, following the amendments of the telecommunications annexes in the Association Agreements in April and October 2023 respectively is continuing. The Commission also assessed that a long-term arrangement for bringing Georgia into the EU roaming area was possible based on the EU-Georgia Association Agreement.

The Cyber-East programme supported capacity-building activities to strengthen national cybersecurity governance and legal frameworks notably in Ukraine, Moldova and Georgia in line with the Directive on security of Network and Information Systems (NIS Directive).

In Armenia, the EU4Digital facility initiated a market analysis, which will help pave the way for further investments in broadband connectivity. The facility also initiated a pilot on e-identification and one on e-commerce to increase trade with the EU. Under the EaPConnect project, 52 Research and Education Institutions have been connected via high-speed connectivity with their EU counterparts, benefiting 47 000 students and researchers.

Azerbaijan continued benefiting from activities under the regional EU4Digital programme which included promoting and developing digital skills. As part of the EIP, a loan was provided to finance the rollout of state-of-the-art broadband infrastructure to more than 280 000 households in rural areas.

In Georgia, the EU4Digital facility is preparing to undertake a review of the national legislation against the EU roaming-related acquis. The facility also finalised a report and action plan on ‘Women’s mentorship in tech programmes in the EaP countries’, which will provide the basis for a dedicated programme implemented under EU4Smart Economic Development.

In Moldova, phase II of the EU4Digital Initiative was launched and continued to support the digital reform agenda. Support was provided to the Customs Service to implement the Agreement on mutual recognition of Authorised Economic Operators that entered into force on 1 November 2023. The implementation of the bilateral project ‘EU4Moldova: Start up City Cahul’ continued with activities to boost STEM education and coding. Digitalisation of SMEs nationwide through the EU4SMEs project started in April that is co-funding seven national SME programmes, one of which is dedicated to digital transformation of SMEs.

Migration and forced displacement

Comprehensive migration and border management continue to be among the EU’s priorities in the EaP region. In Ukraine, through the Integrated Border Management programme worth EUR 15 million, the EU supported border management continuity and strengthening of Ukrainian border management agencies. In Moldova, as part of the 2023 EU Support Package, the EU has allocated EUR 4 million to support capacities of Moldovan police, border guards and customs services. In Georgia, the EU’s total support of EUR 15.2 million was allocated to multiple integrated border and migration management programmes as well as mainstreaming migration into development processes.

The EU supports the implementation of agreements on visa facilitation and readmission as well as continued cooperation on visa liberalisation and readmission with Georgia, Moldova and Ukraine. The EU actively contributes to strengthening migration management and capacity-building in this area, including through cooperation with the European Border and Coast Guard Agency (Frontex). The EU and partner countries are also working to implement balanced partnerships between EaP countries to facilitate legal migration, mobility and people-to-people contacts.

Governance, peace and security

Promoting reforms in good governance and security, strengthening the rule of law and fighting corruption and organised crime are an intrinsic part of the EaP agenda. Addressing these issues is a necessary precondition for boosting economic and social development in the region. Cooperation between EU law enforcement agencies and partner countries continued in the framework of the fight against organised-crime programme and over 1 000 law enforcement officers received training.

In 2023, the EU continued to provide budget support to Armenia to further strengthen judicial and legal reforms, as well as anti-corruption policies. Furthermore, constitutional reform, police reform, including on procurement, as well as the establishment of the new Ministry of Interior were supported. Complementary technical assistance in the justice, law enforcement and security sectors in line with CEPA commitments is continuing. Support on anti-corruption in the public sector is being provided through an ongoing Twinning.

In Azerbaijan, several ongoing projects, continued providing assistance to improve, alternative dispute resolution, capacity building in asset recovery and increased efficiency in anti-money-laundering measures. Support was also provided for drafting of the National Asset Recovery Law, Asset Recovery Strategy and Action Plan as well as a restructuring plan for the establishment of the National Asset Recovery Office and Asset Management Office.

In Georgia, the Security, Accountability and Fight Against Crime (SAFE) programme continues supporting civilian oversight of the security sector and improved border management. Advances in areas such as cybersecurity, human rights and public finance management were also supported. The EU Monitoring Mission (EUMM) remains on the ground along the administrative boundary lines with the break-away territories. Confidence building measures continued through the EU4Dialogue project.

In Moldova, support to justice reforms continued in 2023, through the launch of a project to support the implementation of justice reform. The EU Border Assistance Mission to Moldova and Ukraine (EUBAM) continued its support to the customs and border services. The EU Partnership Mission (EUPM) was established to contribute to the strengthening of crisis management structures and to enhance resilience to hybrid threats, cybersecurity and countering foreign information manipulation and interference. Support for improved cooperation between communities on both banks of the Nistru river continued through the EU Confidence Building Measures Programme.

Case study

4.4.1.4.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

Russia’s war of aggression against Ukraine continued to have a devastating impact on millions of Ukrainian citizens, resulting in civilian deaths and suffering, massive displacement, large-scale destruction of critical infrastructure, and causing unprecedented humanitarian needs. The situation in areas closer to front lines and those under Russia’s and Russian proxies’ military control remained extremely volatile. More than 17.6 million people in the country needed humanitarian support in 2023( 85 ). The EU allocated EUR 300 million to address immediate humanitarian needs, bringing the total assistance to EUR 785 million since February 2022. This assistance has contributed to reaching approximately 11 million people across Ukraine( 86 ), supporting sectors including winterisation, cash assistance, protection, health care and education through its humanitarian partners. Also, the European Commission continued the largest, longest and most complex Union Civil Protection Mechanism (UCPM) operation in history. In 2023, the Emergency Response Coordination Centre (ERCC) received one request for assistance from Ukrainian authorities, which was updated 50 times. A medical evacuation hub in Poland was also financed for the medical evacuation of Ukrainian citizens or other persons located in Ukraine suffering from severe illness, war injuries and life-threatening conditions, requiring urgent, specialised, or long-term medical care. In 2023 alone, 2 297 patients were evacuated from Ukraine. Moreover, an advisory mission to Ukraine was completed in October 2023 to ensure the efficient management of burns and trauma patients. With the new reserves created in 2023, amounting to 21 stockpiles hosted by 16 Member States, the rescEU medical and CBRN stockpiles comprise countermeasures, devices, and personal protective equipment that pose a significant risk of rapid depletion or increased demand during crisis scenarios.

Since the start of Russia's war of aggression more than 984 000 Ukrainian refugees fled to Moldova, of which nearly 112 000 remain in the country( 87 ). In response, the EU made available EUR 20 million in emergency assistance, including cash assistance and protection services, to address the needs of refugees and their host communities.

Following Azerbaijan’s military operation in September 2023 in Nagorno-Karabakh (NK) and the preceding months-long blockage of the Lachin corridor between NK and Armenia, more than 100 000 Karabakh Armenians fled to Armenia( 88 ). The EU provided EUR 12.6 million in humanitarian aid to support the most vulnerable displaced people in Armenia as well as those that remained in NK, ensuring access to basic needs, protection, health care, shelter, food, and livelihoods assistance.

4.4.1.5.    Crisis response and preparedness

Crisis response actions continued to respond to the war of aggression against Ukraine, with six crisis response packages for Ukraine and an additional two for Moldova.

The actions in Ukraine focused on support to civilians, locally identified needs, early recovery in liberated areas, and access to education as well as health care. It also included a strong focus on accountability, support to international investigations, promotion of international humanitarian law and specialised assistance to victims of sexual violence.

In Moldova, the EU continued to respond to the energy crisis and provided comprehensive support to enhance the country's overall resilience, from humanitarian and refugee-related support, support to border management (including through the EUBAM), as well as security and defence support. Given Russia's increased hybrid actions against Moldova, additional focus was placed not only on support for cybersecurity and addressing disinformation but also on increasing resilience locally to diverse types of destabilisation attempts.

In Belarus assistance to democratic civic engagement and leadership was stepped up amid a further deteriorating human rights situation and the regime’s support to Russia’s war of aggression in Ukraine. This resulted in further restrictions of citizens’ fundamental freedoms and forced even more Belarusians to relocate abroad.

The EU continued its support to finding peaceful solutions to conflicts in the South Caucasus, including the conflict between Armenia and Azerbaijan.

During 2023, the EU continued to provide humanitarian assistance, social cohesion and support for mine action in Armenia and Azerbaijan. However, implementation in Nagorno-Karabakh was disrupted when the EU’s only implementing partner on the ground, the International Committee of the Red Cross, lost access during the blockade of the Lachin Corridor. The Lachin Corridor was the only land route connecting Nagorno-Karabakh with Armenia and was subject to various blockades by Azerbaijan between 12 December 2022 and the military operation on 19 September 2023. The blockades impeded supplies of food and medicine for long periods of time and meant that a serious humanitarian crisis was already unfolding inside Nagorno-Karabakh when Azerbaijan launched its attack on 19 September to reclaim the region. Following the military operation, more than 100 000 Karabakh Armenians fled, primarily to Armenia. The EU mobilised EUR 12.6 million in humanitarian aid in the aftermath of the attack to cover emergency needs, and in-kind support under the Union Civil Protection Mechanism was also provided.

In Georgia, the European Union Monitoring Mission in Georgia (EUMM Georgia) continued to provide civilian monitoring of the Parties' actions and contribute to long-term stability in Georgia and the wider region. The mission also engaged in confidence building measures and reports on conflict-related incidents and developments in Georgia.

In Ukraine, support to the government to revamp its mine action sector and return suspected hazardous land to productive use was further enhanced during the year. Assistance to Ukraine’s effort to investigate and prosecute international crimes committed in the context of Russia’s war of aggression against Ukraine also increased, both at the domestic and international level. A strong focus was put on the establishment of the International Centre for the Prosecution of the Crime of Aggression (ICPA) at Eurojust in The Hague, and on the investigation and prosecution of conflict related sexual violence. Assistance to Ukraine’s efforts in reaching out to global partners was put in place and further support to tackling disinformation continued through the dedicated government-run Centre for Strategic Communication and Information Security.

The EU Advisory Mission for Civilian Security Sector Reform in Ukraine (EUAM Ukraine) assists Ukraine in the field of civilian security sector reform, including police and the rule of law. Following Russia’s military aggression against Ukraine, the mandate of the mission has been amended to include close coordination with law enforcement agencies to facilitate the flow of refugees from Ukraine to neighbouring Member States and the entry of humanitarian aid into the country. It also provides strategic advice to Ukrainian authorities on the prosecution and investigation of international war crimes.

The EU supports Ukraine’s efforts to combat illicit trafficking in Small Arms and Light Weapons (SALW) including firearms, ammunition and explosives, in cooperation with the Organisation for Security and Co-operation in Europe (OSCE) and the South-eastern and Eastern Europe Clearinghouse for the Control of Small Arms and Light Weapons (UNDP-SEESAC), thus enhancing the operational and supervisory capacities of national authorities, improving the legislative and regulatory framework and raising public awareness.

4.4.2.    European Neighbourhood South 

4.4.2.1.    Introduction (policy developments)

The Joint Communication on a ‘Renewed partnership with the Southern Neighbourhood, A new Agenda for the Mediterranean’( 89 ) was adopted in February 2021 with related Council Conclusions( 90 ) in April of the same year. The Agenda for the Mediterranean with the Economic and Investment Plan (EIP) annexed to it is the EU’s main political framework for the Southern Neighbourhood. The Agenda had been prepared and adopted during a complex and unstable period, marked by the COVID-19 pandemic. Apart from several already existing crises affecting the Southern Neighbourhood region, the Russian war of aggression against Ukraine is having wide-ranging geopolitical consequences for the Middle East and North Africa while the scale of the impact of the Israel – Hamas war on the entire region is not yet clear.

Despite the challenging context, the EU has demonstrated its commitment in providing its partners in the Southern Neighbourhood all possible support, both politically and economically. In line with the Agenda for the Mediterranean we have continued working to achieve the two main objectives of enhancing our Partnership and working together to realise untapped strategic opportunities.

Due to the situation in Israel/Gaza – Palestine, the 2023 EU-Southern Neighbourhood Ministerial, initially scheduled to take place on 27 November, was postponed, while the 8th Union for the Mediterranean Regional Forum held in Barcelona on 27 November focused on the situation in Israel and Gaza.

The work for the preparation of bilateral political frameworks (Partnership Priorities) continued in 2023. Negotiations could in particular progress, in parallel, for Palestine 91* and Israel, but were frozen from the 7 October. For Syria and Libya, no Joint Documents are under consideration, and EU programming is done under Special Measures.

Having reached the halfway point in the 2021-2027 programming period, the EU launched and completed in 2023 the mid-term assessments of the Multi-annual Indicative Programmes (MIP) for each country, for the regional MIP, and the multi-country MIP dedicated to migration. This exercise has allowed an important stock-take with a view to ensure that objectives and priorities are on track. The Mid-term review process is expected to be completed in 2024, with the adoption when necessary of amendments to the MIPs. The territorial cooperation cross-border programme Italy-Tunisia and the transnational programme NEXT MED that operate directly in the Mediterranean Sea basin continue providing support for developing joint solutions on the most pressing needs of the regions.

Building on its cross-sector Partnership, the EU continued shaping its dialogue and cooperation with Morocco, with various exchanges and high level contacts throughout the year. In January 2023, HRVP Borrell visited the country and met with the Head of Government, the Minister of Foreign Affairs, African Cooperation and Moroccans Living Abroad, as well as interlocutors from civil society and the private sector. The official visit was an opportunity for an in-depth discussion and update on progress made in implementing the EU-Morocco Partnership.

In 2023 the EU continued to actively engage and provide assistance to Tunisia, which remained in a delicate political and socio-economic situation. Contacts at various levels were maintained during the year and included official working visits of EU Commissioners and Member States Ministers of Foreign Affairs on behalf of HRVP Borrell. The President of the Commission visited the country twice, to announce and witness the signature of the EU-Tunisia Memorandum of Understanding on 16 July 2023, providing a new framework for partners to advance a range of joint priorities comprising five pillars (macro-economic stability, trade and economy, green energy transition, people to people contacts, and migration and mobility) for cooperation.

EU relations with Egypt enjoyed a positive momentum in 2023 through various high-level visits, political and thematic dialogues in Cairo and Brussels and enhanced cooperation across key policy areas. The EU and Member States confirmed the prospect of a Strategic and Comprehensive Partnership with Egypt in recognition of its key role for stability in the region. EU-Egypt political relations intensified in the aftermath of 7 October and the ensuing Israel-Hamas war, with Egypt exerting major efforts in facilitating humanitarian aid delivery to Gaza, negotiating a humanitarian pause and the release of hostages, and convening international diplomacy to seek consensus on a ceasefire and a political solution to the conflict. The EU-Egypt Association Committee was held in Cairo and paved the way to the 10th meeting of the EU-Egypt Association Council to be held in January 2024. At COP28 in the UAE EU-Egypt cooperation on climate change was solidified with the signature of a Joint Declaration on an Egypt-EU Water Partnership.

The EU continued working towards reinvigorating the EU-Algeria Partnership. In March 2023, the visit of HRVP Borrell to the country allowed for in-depth discussions on regional stability, human rights, the fight against corruption, but also the EU-Algeria Energy Partnership, with a particular focus on the potential of renewable energies. Throughout the year, institutional meetings in the framework of the Association Agreement between EU and Algeria took place, with a number of sectoral sub-committee meetings enriching the dialogue. The specific trade barriers imposed by Algeria remained a central issue to be resolved.

The EU has further intensified its engagement with Jordan to pursue a constructive policy dialogue and assistance in a broad range of areas, regional issues and within the Union for the Mediterranean. In the framework of the new EU-Jordan Partnership Priorities for the period 2021-2027, all relevant thematic subcommittees were organised in Brussels or Amman in 2023. On 7 November, European Commission President Von der Leyen and President of the European Council Michel hosted His Majesty King Abdullah II in Brussels and the EU announced a substantial new EU support package to Jordan worth EUR 902 million in grants and EUR 500 million in loans by the EIB. On 16 November, European Commission President Von der Leyen held a meeting with His Majesty King Abdullah II in Amman.

The EU dialogue and cooperation with Lebanon continued, with various exchanges and visits throughout the year. On 20 July, the Council extended for one year a framework for targeted restrictive measures to address the situation in Lebanon, including the possibility of imposing sanctions against persons and entities who are responsible for undermining democracy or the rule of law. The EU-Lebanon dialogue on regional security and stability issues further intensified following increasing tensions at the Lebanese border with Israel, with a view to avoiding regional escalation risks. On 21 December, the European Union decided to allocate EUR 205.5 million to address several priority areas to support the country’s stability and recovery. The EU continued to provide assistance to Lebanon and local communities for hosting Syrian refugees.

The EU remained committed to the resolution of the Israeli-Palestinian conflict based on the two-state solution. After the terrorist attacks by Hamas against Israel on 7 October, the EU has emphasised the right of Israel to defend itself in line with international law and international humanitarian law. We have reiterated the importance of ensuring the protection of all civilians at all times. The EU has voiced its deep concern about the humanitarian situation in Gaza. We have called for continued, rapid, safe and unhindered humanitarian access and aid to reach those in need, through all necessary measures, including humanitarian corridors and pauses and cessations of hostilities. The EU welcomed the adoption of UN Security Council resolutions 2712 and 2720.

In order to provide urgent humanitarian aid to those civilians most in need in Gaza, the EU quadrupled its humanitarian assistance in 2023 to more than EUR 100 million, with the Commission announcing an initial EUR 125 million for year 2024. The Commission also adopted a EUR 118.4 million assistance package in December 2023 to support the Palestinian Authority. In 2023, the EU has also continued supporting, politically and financially, the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), in close cooperation with the international donor community.

The High Representative / Vice-President has engaged with regional and international partners who could have a positive role to play in preventing further escalation. He spared no efforts to revive the political process, including through the EU Special Representative for the Middle East Peace Process and his work on a regional comprehensive peace approach.

The EU continued to provide assistance across Syria and in neighbouring refugee-hosting countries. The EU and its Member States are the largest donors of humanitarian aid for Syria, having provided over EUR 30 billion since 2011. The EU continues to support the efforts of the UN Special Envoy for Syria to find a credible sustainable and inclusive political solution as the only route to lasting and just peace in Syria through a Syrian-led, UN facilitated political process according to Security Council Resolution 2254. The EU continued to be a partner to the Global Coalition to defeat Da’esh and maintained substantial restrictive measures on the Assad regime. Two major conferences took place in 2023: the 20 March International Conference ‘Together for the people of Türkiye and Syria’ held after the 6 February earthquakes where EUR 7 billion were raised from the international community, followed in June by the Seventh Brussels Conference on ‘Supporting the Future of Syria and the region’, hosted by the European Union, where EUR 5.6 billion were raised for 2023 and beyond.

In Libya, the EU’s efforts focused on fostering stability both in the country and the wider region. The EU remained engaged with partners, supporting the inter-Libyan dialogue and the UN-led mediation efforts headed by UN Special Representative Bathily. The latter met with HRVP Borrell in Brussels in September 2023. This was an opportunity to discuss the way forward and how to address the challenges in relaunching the country’s political process following the postponement of the 2021 national elections. The EU also continued its engagement in Libya through Operation EUNAVFOR MED IRINI, which enforces the UN arms embargo, and the EU Integrated Border Management Assistance Mission (EUBAM), which provides capacity-building to Libyan authorities in the areas of border management and law enforcement.

4.4.2.2. Implementation

In 2023, the Neighbourhood South has been affected by natural disasters that added to the structural fragility (climate change, desertification and water scarcity) and to the socio-economic impact of the Russian aggression against Ukraine. The political situation in the region became highly volatile following the Hamas-Israel war with fear of spillovers throughout the Middle East increasing the level of uncertainty regarding political and economic stability. Some countries are affected by protracted crisis, such as the neighbours of Syria hosting a significant number of Syrian refugees and Libya that remains divided.

As regards Palestine*, the EU carried out an intense review of its cooperation portfolio in view of concerns about the risks of funds deviation to terror financing and the robustness of EU safeguards measures applied to EU funding. While no misuse of EU funds had been detected an enhanced level of safeguards was decided to further minimise residual risk. The review conclusion allowed to commit 2023 PEGASE funds, sending a strong signal of support to the Palestinian Authority that finds itself in the midst of a financial crisis.

In this context, the European Commission continued to implement the Economic and Investment Plan of the 2021 Agenda for the Mediterranean. EUR 4 billion have been committed in 2021 to 2023 (EUR 1.8 billion in 2023) that will mobilise EUR 23.8 billion in investments in green transition, digital, clean energy, water and sanitation, private sector development, and education sectors.

The 2023 cooperation programmes addressed, both at country and regional level, structural reforms, good governance and the rule of law, inclusive economic development, job creation, in particular for youth and women, education and vocational training, and social safety nets, migration and mobility, including targeted support for populations in need, particularly Syrian refugees and hosting communities. In total, NDICI-Global Europe commitments for 2021 to 2023 amount to EUR 5.2 billion.

Strengthening partnerships with Southern Neighbourhood countries is a critical objective both for the EU and partner countries. In Tunisia, the signature of the MoU in July 2023 represents an important step for our work along key areas of mutual interest, including the resumption of macro-economic discussions. The EU continued to support regional dialogue and fora, notably the Union for the Mediterranean (UfM). As co-president of the UfM, the EU steers, together with the South co-presidency, the action of the organisation and sets the priority areas for a stronger cooperation and integration in the Euro-Mediterranean region. In 2023, the annual operating grant from the Commission amounted to EUR 4.3 million.

Human development and inequalities

In 2023, ongoing support continued to address the multidimensional aspects of poverty and social exclusion, including through programmes supporting rural development, food security and climate change resilience.

In Egypt, the financing agreement for the ‘EU for Decent Life’ programme (EUR 50 million) was signed. In addition, implementation of the EUR 24 million rural development programme will provide essential support to poor and vulnerable populations in Egypt.

The EU continued to be a steady supporter of the provision of essential services, education, social assistance and health care to Syrian refugees and hosting communities in Lebanon and Jordan, while supporting also Syrian people inside Syria (EUR 57 million). The EU Trust Fund in response to the Syrian crisis (Madad) has supported 10.5 million individuals since its creation in 2015 to address critical needs. In 2023, a package worth EUR 140.5 million was adopted for Lebanon to continue supporting the impact of the Syrian crisis, covering social protection, education and water. In Jordan, the EU committed EUR 90 million to support refugee’s access to education, social assistance and to strengthen solid waste management in refugees camps.

Addressing public health issues and strengthening health systems and governance, including social protection and assistance, remained a key EU objective in the Southern Neighbourhood with support provided in Libya (Towards a resilient health system in Libya, EUR 16 million), Morocco (Programme d’Appui Budgetaire à la Protection Sociale au Maroc - KARAMA-II, EUR 130 million) and Tunisia (Promotion du régime de l'autoentrepreneur, EUR 1 million). In Palestine*, the EU supported hospitals in East Jerusalem with a financial contribution to partially cover the outstanding invoices of medical referrals.

The European Commission kept giving high priority to education in the Southern Neighbourhood countries for instance in Tunisia (Programme d’Appui Budgetaire au Secteur de l’Éducation, EUR 65 million) to support the governance and digitalisation of the sector, to improve primary school realities for children and better match the curricula with job market needs, and in Morocco through the Support to higher education, research, innovation and mobility (EUR 46 million). The second phase of the successful school modernisation programme in Tunisia was signed with the EIB in 2023 (EUR 65 million, including an EIB loan of EUR 40 million) for the construction of 80 new green primary schools, the provision of modern digital equipment as well as school transport.

Technical and Vocational Education and Training (TVET) projects have been supported in Egypt (Support to Youth Employability and Skills, EUR 25 million) and Jordan (Education and TVET budget support programmes, EUR 85 million adopted in 2023) to address skills shortage and enhance vocational education and training systems. In Morocco, a programme to promote cultural and creative industries, social inclusion and gender equality, has been launched (EUR 10 million). Under the regional Team Europe Initiative on ‘Jobs through trade and investment in the Southern Neighbourhood’, the project ‘Youth NEETS’ (EUR 3 million) has been developed to improve the situation of young NEETs (Not in Employment, Education or Training) by increasing employment and training opportunities. Equally, actions for promoting inclusive and quality education for women, youth and vulnerable groups have been supported across the region, for example, in Lebanon (EUR 30 million under 2023 special measures). In Jordan, the EU has adopted programmes worth EUR 165 million in the sectors of education, higher education and TVET promoting access, inclusiveness and quality of education and TVET for young Jordanians and vulnerable populations, including refugees (both in refugees camps and in hosting communities).

Green Deal

Key flagship initiatives have moved forward in support to the modernisation of economies with a particular focus on green transition, resilient economy, renewable energy (solar, wind, and hydrogen), energy efficiency as well as sustainable agriculture practices, water management and environmental protection. Better access to climate finance was mainstreamed. The EU-Egypt Water Partnership declaration was signed at COP28 in Dubai. The regional EU-funded Clima-MED project focused on supporting local authorities in the development, implementation and financing of their Sustainable Energy and Climate Action Plans. The EU also signed in 2023 two complementary initiatives at local level (Local Climate Adaptive Living facility) with the objective to integrate climate change into local governments’ planning and budgeting systems. In Morocco, in the framework of the EU-Morocco Green Partnership, the programme ‘Al Ard Al Khadraa’ (Terre Verte) promoted climate resilient practices, sustainable agriculture practices (water use efficiency) and forestry management (reforestation).

The EU cooperation on energy has focused on numerous domains including the promotion of renewables and green molecules (hydrogen and derivatives) at country and regional levels. Cooperation on a sustainable energy transition has advanced for instance in Morocco with the launch of a dedicated support to green energy (EUR 50 million) and the adoption of a new programme to promote green finance, decarbonisation and the integration of electricity markets (Morocco decarbonisation and Climate resilience programme, EUR 25.6 million). In the framework of the EU support to Lebanon’s Green Agenda (EUR 32 million), two projects have been contracted in 2023 to support Competitiveness and Growth through Resource Efficiency and Circularity Approaches (EUR 10 million) and as part of the EUR 22 million programme for Sustainable Energy for Public Services entities, entrepreneurship and innovation (support to industry and SMEs: EUR 2.7 million).

A new dynamism among European donors provided the necessary funding to initiate the Italy-Tunisia electricity interconnexion project ‘ELMED’. A EUR 307.6 million grant by the Connecting Europe Facility was approved in August 2023, complemented by a financing set-up through the EFSD+ adopted in December, blending a European Commission grant of EUR 27 million with EIB, EBRD and KfW loans to work on infrastructures and the reform of the electricity market. In a complementary action, the European Commission adopted through EFSD+ a EUR 20 million grant blended with an EBRD loan to enhance the Tunisian electricity grid infrastructure, promote energy security and increase energy generation from renewable sources at lower tariffs.

The regional MED-GEM project initiated its activities in 2023 to catalyse cooperation on renewable electricity and hydrogen. In parallel, work has continued on harmonising energy regulatory frameworks (through the Mediterranean Energy Regulators – MEDREG project) and enhancing electrical interconnections in the Mediterranean (through the Mediterranean Transmission System Operators MED-TSO project). The MEETMED project pursued its activities in promoting energy efficiency in buildings and appliances at regional level. The Commission also focused on the development of clean transport solutions, providing support for instance in Morocco to the extension of the tramway network in the Rabat-Sale-Temara urban area. Finally, energy efficiency in Southern Neighbourhood public buildings (schools, health facilities or social housing) is now supported through the PEEB MED regional programme.

On environmental protection and biodiversity conservation, the regional Water and Environment Support programme pursued its contribution to reducing the pollution reaching the Mediterranean Sea and strengthening the efficient use of water in urban and rural areas. In addition, the IMAP MPA project (‘Towards achieving the Good Environmental Status of the Mediterranean Sea and coast through an ecologically and efficiently managed and monitored network of Marine Protected Areas-MPA’) animated the MPA network.

New initiatives have been launched to improve water supply management, wastewater and sanitation systems in Lebanon (WASH – EUTF Madad, EUR 30 million) as well as in Jordan to continue providing solid waste management services for Syrian refugees and vulnerable host communities (Al-Ghabawi waste treatment plan, EUR 72 million provided by the EU and EBRD). Furthermore, key investment projects for sustainable water management continued to be supported in Jordan (Aqaba-Amman Water Desalination and Conveyor project), which will provide 300 million cubic meters of fresh water a year, alleviating water scarcity in Jordan. The EU and its Member States acted as a catalyst, through a Team Europe Initiative on Sustainable Water Management, that has so far leveraged over EUR 740 million in grants and loans. In Egypt, the Gabal Asfar Wastewater Treatment Plant Stage III will contribute to the improvement of Egypt’s wastewater treatment services and capacity.

Sustainable growth and jobs

The Commission accompanied EU companies and private investors in seeking business opportunities in the Southern Neighbourhood, including by using the EFSD+ instruments for more strategic investments. In 2023, 24 guarantee schemes supporting private sector operations were selected for a total of EUR 916 million guarantee coverage for connectivity, micro-, small, medium-sized enterprises financing, sustainable cities, sustainable agriculture, sustainable finance, and human development projects.

The Commission promoted social and inclusive economy as a vector for job creation and expansion of economic opportunities. New projects have been launched in Tunisia to support innovative methods of raising public awareness of public economic policies (EUR 4.5 million), promote the auto-entrepreneurs’ system (EUR 1 million) and support green entrepreneurship (EUR 12 million). To foster new models of entrepreneurship and social economy, the Commission launched the regional programme ‘Impact Together’ (EUR 10 million grant). Other new 2023 programmes address employment policies, including for youth and women. In Algeria, it will improve the integration and development of skills, in particular for young people and women, through strengthening the capacity of labour market institutions. In Egypt, the EU Support to Youth Employability and Skills programme will aim at improving the matching of technical education and training programmes with labour market needs.

In 2023, the Commission supported financial access for SMEs, capacity building and economic development, with a special focus on women entrepreneurs in Libya, Jordan and Lebanon. Two new regional projects have also been contracted in 2023 (EUR 5 million) to promote an enabling policy and regulatory framework for women entrepreneurs’ financial inclusion and access to finance. In Lebanon, the Sustainable energy transition programme (EUR 11 million), adopted in November 2023, aims to support innovation and sustainable energy transition in the private sector, including SMEs through technical assistance and limited grant co-financing. The Commission adopted the new project EU4SKILLS in Libya (EUR 7 million) to promote skills and employability for the private sector development and adopted a new EUR 7 million programme to better align Libyan workforce skills to the needs of the labour market.

The EU has continued to support the nexus between trade, investment and job creation, notably under the regional project ‘Mainstreaming Employment into Trade and Investment (METI)’ (EUR 5 million) for policy makers such as in Egypt, Jordan, Morocco and Tunisia. The regional Team Europe Initiative on ‘Jobs through trade and investment’ gained further momentum culminating in the UfM Trade and Investment Forum in Brussels in December 2023.

The EU has funded projects aimed at harnessing the potential of innovation and the green transition to promote sustainable job creation. For instance, the regional project ‘From Innovation to Creation’ (EUR 8 million) has been designed to improve the effectiveness of start-up ecosystems and create jobs in Palestine*, Jordan, Lebanon and Tunisia.

Digitalisation, science, technology and innovation

Digitalisation of societies is a core priority of EU’s action in the region for more inclusive and opportunity-filled economic and social development. Cooperation in the digital domain has progressed in a comprehensive manner with the development of key digital infrastructures such as the MEDUSA submarine cable project to provide fast and secure connectivity between the EU and Northern Africa (initial cost of EUR 342 million). In Egypt, a new Support to Digital Transformation (Masr el Rakamia, EUR 10 million) has also been approved in 2023 to support digital transition, boost innovative digital solutions and further reduce the current digital divide. In Jordan, the Commission has been supporting the digitalisation efforts of the Ministry of Justice to improve case-load management and promoting e-learning with the Jordanian Ministry of Education.

Migration and forced displacement

After more than a decade of conflict in Syria, the scale, severity and complexity of needs of the Syrian population remain extensive, while large-scale, conflict-related, displacement also persists at significant levels. Over 6.8 million Syrians are internally displaced and a further 5.6 million are refugees, primarily in neighbouring countries. In 2023 special measures for Syria (EUR 57 million), Jordan (EUR 90 million) and Lebanon (EUR 140.5 million) were adopted. The EU with its Member States are the main donor in the international response to the Syrian crisis, with over EUR 30 billion mobilised since 2011 in humanitarian, stabilisation and resilience assistance. The EU hosted the Brussels 7th Conference on Supporting the future of Syria and the region on 14 to 15 June 2023, mobilising aid from the international community amounting to EUR 9.6 billion for 2023 and beyond, including EUR 5.6 billion in grants and EUR 4 billion in loans.

Migratory pressure from North Africa via the Central and Western Mediterranean routes has seen a sharp increase compared to 2022. To address this issue, the Commission presented EU Action Plans for the Central Mediterranean route in November 2022 and for the Atlantic/Western Mediterranean Route in June 2023. These plans were followed by commitments of EUR 318 million in 2023, which include the additional EUR 110 million announced by President von der Leyen in her letter to Leaders ahead of the European Council of 23 to 24 March. This amount adds to the approximately EUR 373 million committed in 2021 and 2022. The programmes, which are being developed, aim to continue and build on successful actions under the EU Trust Fund for Africa (EUTF). The 2023 programmes targeted border management, anti-smuggling and anti-trafficking, protection, legal mobility and return and reintegration in Tunisia and Libya. In the frame of the Talent Partnerships launched in North African countries, funding support has been provided to boost mutually beneficial international mobility based on better matching of labour market needs and skills between the EU and partner countries.

Governance, peace and security

Good governance and rule of law are essential aspects of EU values when cooperating with third countries. In Palestine*, the EU continued to finance the Palestinian Authority (via PEGASE) and UNRWA, contributing to maintaining essential public services for Palestinian citizens. It is accompanied by a policy dialogue aimed at encouraging reforms, which includes an incentive-based framework that links part of this support to reform achievements in key sectors. In Libya, the EU continued to provide technical assistance in areas such as public administration, democratic governance, gender, access to justice, public awareness on the rule of law, the fight against corruption and money laundering, strengthening CSOs’ capacities, and promoting human rights. A new EUR 18 million programme to support Governance and Stabilisation in Libya was adopted in 2023. The Commission also provided support to improve public service delivery and strengthen local public service delivery through technical assistance to municipalities such as in the sector of solid waste management (EUR 7.5 million). In Tunisia, the Commission continued its support for CSOs through an overall amount of EUR 62 million. In addition, the Commission selected six new grant projects to strengthening CSOs’ organisational capacities in the promotion of human rights protection (including LGBTQI + rights). In Lebanon, a Women Empowerment Hub (EUR 6 million) has been launched to increase women’s leadership and participation in the political, economic and public spheres and to work on key legislative reforms to protect women from all forms of violence. Furthermore, the Building Integrity and National Accountability project (EUR 2.8 million) is being implemented to enhance the role of civil society actors in enhancing governance, accountability, and transparency in Lebanon. In Jordan, the Commission continued to support rule of law and access to justice for all, including for refugees and host communities, by implementing a EUR 39 million programme. In Egypt, the Commission’s Support to Resilience of future generations (EUR 8 million) was approved in 2023. The action will support national efforts to improve the policy, legal and institutional frameworks to address the gaps in the child protection system.

On transitional justice and accountability in Syria, the EU continued to support access to justice mechanisms for 142 survivors of international crimes and human rights violations to pursue diverse accountability goals. The EU also adopted a Roadmap for EU support to Syrian Civil Society in February 2023, developed with inputs from the Syrian civil society.

EU action supports cultural dialogue, media freedom and organisations and individuals that defend democratic values. The Anna Lindh Foundation (ALF) is at the core of promoting intercultural relations and mutual understanding in the Mediterranean region. ALF civil society networks are activated to develop intercultural dialogue and activities at national and regional level, and cooperate through regional exchanges and training on peer-to-peer enhancing capacities modules. In this regard, more than 531 activities and 39 events were organised in 2023 involving 90 organisations, reaching 32 300 direct and indirect beneficiaries. The EU is also supporting the European Endowment for Democracy, together with Free Press Unlimited and Journalisme et Citoyenneté, providing training and support to individuals, organisations and independent media that promote democratic values and freedom of expression.

Food security and nutrition

In order to strengthen resilience and mitigate the consequences of Russia’s war of aggression against Ukraine, the European Commission set up a new Food and Resilience Facility (FRF) to support the most affected among our Southern Neighbourhood partners. Under this Facility, EUR 225 million are being deployed, tailored to the needs of countries highly dependent on food imports. In Egypt, two Contribution Agreements have been signed under the FRF to improve the grain production and storage capacities. In Algeria, an action has been set up to strengthen and diversify the sources of income of small farms, promote sustainable agricultural practices and improve production (EUR 5 million). In Tunisia, the 2022 sustainable food security programme, worth EUR 25 million (including EUR 20 million from the FRF), continued to support cereal producers to reduce their production costs, increase research and development and support nutrition in schools. Furthermore, the Commission signed in 2023 a EUR 20 million blending grant and approved a EUR 150 million EU guarantee with the EIB through EFSD+ as part of a food resilience programme of EUR 570 million with EIB, EBRD, World Bank, and African Development Bank to address Tunisia’s food and nutrition situation. Inside Syria, substantial efforts were devoted to the implementation of new resilience, food security and livelihoods initiatives to address the food crisis. The EU allocated EUR 28 million to projects with this objective.

Case study

4.4.2.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

In Libya, despite the fragile security situation and the political impasse, the number of conflict-affected people with displacement related needs reduced to 50 000 by mid-2023. The political divide between East and West hampered recovery in Eastern Libya following the devastating impact of storm Daniel in September 2023 that left at least 5 620 people dead, thousands missing and over 44 000 displaced. The EU provided an emergency allocation of EUR 5.7 million in humanitarian funding to tackle the most urgent needs of the people affected, focusing on protection, education in emergencies, health, mental health and psychosocial support, and water and sanitation. Libya remains a major departure point for migrants seeking to reach Europe. In 2023, the country was included in the European Commission’s regional projects promoting international humanitarian law (IHL) and supporting people on the move with protection and legal assistance.

Egypt is a country of destination and transit for refugees, asylum seekers, and migrants from the Middle East and East Africa. At the end of 2023, 458 000 refugees were registered in Egypt, stranded in the poorest neighbourhoods of its largest cities. Sudanese account for 42 % of the total refugee population followed by Syrians with 34 %, with the remainder mainly South Sudanese, Eritreans and Ethiopians. Many refugees and asylum seekers live below the national poverty line and have been adversely affected by the economic difficulties the country is facing. In 2023, the EU provided EUR 5.2 million in humanitarian funding for education in emergencies and basic needs to the most vulnerable refugees and asylum seekers.

Still without a resolution for the four-decade long political conflict, tens of thousands of Sahrawi refugees remain stranded in a forgotten and protracted humanitarian crisis. Gathered in five camps around Tindouf in the Algerian Sahara Desert, the Sahrawi refugees depend on external humanitarian assistance. The political sensitivities, as well as extreme conditions thwart any short-term perspectives for return, integration or resettlement and deter the interest of development actors. In 2023, the European Commission deployed projects amounting to EUR 9 million to respond to the high vulnerability of Sahrawi refugees in camps. This amount includes EUR 5 million provided in the context of a programmatic partnership agreement with the World Food Programme (WFP) for food and nutrition assistance. Other assistance included support to improve the quality of primary education, the supply of essential medicines, and the provision of safe drinking water.

4.4.2.4.    Crisis response and preparedness

The EU continued to respond to emerging and ongoing crises in its southern neighbourhood.

In response to the massive earthquake in northwest Syria in January 2023, the EU launched an action to support the affected communities. This came in addition to the EU support for peace and accountability efforts in the country, as the population was already suffering from the consequences of a decade-long civil war.

In Libya, the EU maintained its engagement to support the political processes, including through the strengthening of joint security efforts and emphasis on human security. Already before the war in Gaza, the EU supported efforts to promote a Middle East Peace Process. This response was increased following the 7 October attacks and the military response in Gaza. In addition to promoting peace efforts, the response focused on preventing the spill-over of full-scale conflict into the West Bank; health care support (including mental health) and mine-action.

In addition to actions in Israel and Palestine( 92 ), support was also provided to Egypt to build up medical capacity to cater for medical evacuees from Gaza. Earlier during 2023, support was also provided to Egypt for its response to the significant number of people fleeing the civil war in neighbouring Sudan.

Under the thematic funding for Global and Transregional Threats, specific facilities established to support partner countries efforts to counter terrorism and violent extremism were instrumental in mobilising expertise and increasing the preparedness and response capacities of countries such as Jordan, Morocco, and Tunisia, and supporting the organisation of live exercises to test and improve operational response and inter-agency coordination.

Through financing via the CFSP budget, the EU integrated border management assistance mission in Libya (EUBAM Libya) continues to assist the Libyan authorities in developing state security structures, in particular, on border management, law enforcement and criminal justice. Through its revised operational plans, EUBAM Libya has been mandated with the additional strategic task of being ready to provide support to the UN-led efforts for peace within the Berlin Process, under the scope of EUBAM’s core areas of engagement.

4.5.    Western Balkans and Türkiye

4.5.1.    Introduction (policy developments) 

Financial Assistance under IPA III is based on the IPA III Programming Framework( 93 ), which is an overarching European Commission strategic document for the use of IPA III funds for the duration of the 2021-2027 multiannual financial framework (MFF), reflecting the specific objectives of the IPA III Regulation( 94 ) and is focused on the priorities of the enlargement process. The key policy framework for the IPA III funds is the Economic and Investment Plan (EIP) and the Green Agenda for the Western Balkans, which aims to spur the socio-economic green and digital recovery of the region and enhance economic integration and cooperation in the region.

In addition to annual or multiannual action plans at national or regional level, and horizontal initiatives targeting specific types of partners (e.g., civil society) or cross-cutting issues, the key instrument for the implementation of the EIP is the Western Balkans Investment Framework (WBIF) which is a collaborative financing platform that blends IPA funds with loans to support socio-economic convergence in the region toward the EU. By the end of 2023, the WBIF Board had endorsed 59 flagship investments, totalling EUR 8.9 billion, including a EUR 2.6 billion IPA grant. These investments focus on sustainable transport, renewable energy, education and health facilities, environmental protection, and private sector development. In addition, the Commission and international financial institutions have progressed with the negotiation of the EFSD+ Western Balkans Guarantees to further boost investments in the region and the implementation of the EIP policy priorities, attracting private capital financing.

To address the impact of Russia’s aggression against Ukraine in the region, the European Commission announced a EUR 500 million Western Balkans Energy Support Package in December 2022, out of which 90 % (EUR 450 million) was disbursed early 2023.

The programming of the 2024 IPA budget was almost concluded by the end of 2023 for a total amount of EUR 3.3 billion, achieving the unprecedented level of 92 % of programmed funds for the Western Balkans - three years before the end of the MFF.

In November 2023, the European Commission adopted the New Growth Plan for the Western Balkans. The Plan aims to bring the Western Balkan partners closer to the EU by offering some of the benefits of EU membership in advance of accession. It focuses on boosting economic growth and accelerating socio-economic convergence. The Plan is accompanied by a Commission proposal for a Reform and Growth Facility that should provide EUR 6 billion (including EUR 2 billion in grants and EUR 4 billion in loans) for the region during the period 2024-2027. To access these funds, the Western Balkans’ counterparts should prepare Reform Agendas that outline key reforms related to socio-economic and fundamental aspects, including the rule of law, fight against corruption and organised crime, and fundamental rights.

The EU and Türkiye maintained high-level engagement, focusing on common interests. Via the IPA 2023 annual action plan, the Commission allocated EUR 109.35 million to various sectors in Türkiye, including climate, environment, energy, transport, agriculture, education, employment, and fundamental rights.

In response to the European Council’s decision in June 2021, which mobilised EUR 3 billion in additional refugee assistance for Türkiye, EUR 240 million was allocated for socio-economic support to refugees and host communities through NDICI-Global Europe, EUR 210 million for health care and EUR 115.6 million to post-earthquake support for health and education infrastructure under IPA III in 2023.

Following the devastating earthquakes in February 2023, an International Donors’ Conference swiftly organised by the Commission and the Swedish EU Presidency, generated EUR 7 billion in pledges, which are by now almost entirely mobilised to support critical infrastructure reconstruction, recovery, rehabilitation, and assistance to vulnerable populations and refugees .

The Türkiye Investment Platform (TIP) under the EFSD+ was launched in 2022. The EFSD+ for Türkiye has so far set aside EUR 200 million of provisioning for budgetary guarantees to support EIB-dedicated EFSD+ guarantees and EFSD+ open architecture guarantees. In the latter category, EUR 317 million of guarantee cover has been so far allocated to several investment programmes, implemented through International Financial Institutions (IFIs), which are expected to generate up to EUR 2 billion euro in investments. This provides a powerful set of de-risking instruments increasing the financial capacity of EU and international financial institutions to support and promote public and private investments in Türkiye.

4.5.2.    Implementation

Human development and inequalities

The European Commission supports the Western Balkans to implement the European Pillar of Social Rights, the development of their human capital, and helps deliver on the priorities identified in the economic reform programmes in the areas of education, skills, employment, health and social protection, and inclusion.

In 2023, the Youth Guarantee remained a priority in the Western Balkans. In addition to North-Macedonia, Albania started piloting its Youth Guarantee Implementation Plan, to ensure that youth receive a quality offer for employment, education, apprenticeship, or traineeship within four months of leaving formal education or becoming unemployed. In addition, IPA funds facilitated the establishment of a new College of Europe campus in Tirana, and a continued dialogue between policy makers and young people through the initiatives like Regional Youth Cooperation Office and the Western Balkans Youth Lab, which promoted the role of young people in the design of mental health strategies.

The EU continued to promote the social inclusion of Roma communities. Roma Integration Phase III, implemented by the Council of Europe, supported the implementation of the Poznan commitments to tackle specific challenges faced by Roma such as housing, employment, and discrimination. In addition, EU-funded and CSO-led projects empowered Roma women and supported the Roma entrepreneurs’ economic development.

With support from the European Institute for Gender Equality (EIGE), gender equality policies in the region were enhanced. This included developing national Gender Equality Indices, improving statistical data collection on sex-disaggregated information, and violence against women. In addition, the EU supported regional network of CSOs on gender equality enhancing their capacity to monitor government gender commitments related to the EU Accession process and the EU approximation process.

The second phase of the Employment and Social Affairs Platform, completed in December 2023, achieved significant milestones related to the European Pillar of Social Rights. Notable accomplishments include establishing the Western Balkans Platform Tackling Undeclared Work, conducting benchmarking exercises for Public Employment Services, creating an assessment tool for Economic and Social Councils, and enhancing the capacity of labour inspectorates in Occupational Safety and Health. These processes align with EU-level practices, preparing beneficiaries for their future roles upon accession.

The region has received ongoing support in critical areas of the EU Global Health Strategy. This includes prevention, detection, and response to health emergencies, strengthening health systems, advancing universal health coverage, and addressing antimicrobial resistance through a One Health approach.

Notable achievements were accomplished in social sectors across the IPA region. In Bosnia and Herzegovina, the deinstitutionalisation Road Map was developed to guide the transformation of local childcare institutions. In Kosovo, the EU raised awareness about living conditions and rights of persons with disabilities, supported adoption of the Law on Family and Social Services, enhancing social service coverage and financial sustainability, prioritised inclusiveness in education for children with special needs, trained over 270 school professionals in inclusive education, and mitigated energy price impacts for over 250 000 households, many of which were in vulnerable positions. In Albania, the EU completed works in rebuilding or rehabilitating 45 education facilities in earthquake-affected municipalities and extended social care services at the municipal level addressing specific needs of various groups such as children, women affected by violence, the LGBTIQ+ community, and people with disabilities.

In North Macedonia, the EU focused on equal opportunities, gender equality, social protection, and health, supported scholarships for 440 children with disabilities, improved teaching practices in 25 schools, and enhanced accessibility of 15 school buildings. The EU budget support programme for Youth supported the efforts of the authorities to reform its vocational education and training programme and improve young people’s skills making them relevant to labour market needs as well as enhance their access to jobs. The youth unemployment (ages 15 to 29) rate decreased to 24.9 % in 2023 compared to the baseline of 30.5 % in 2019. In Serbia, the EU assisted Serbian institutions to align legislation with EU standards, and reformed the health care system for resilience, inclusivity, and responsiveness. In Türkiye, the ‘Improving Foster Care System’ project supports vulnerable children in need of emergency care and protection, EU strengthened the institutional capacity of the Child Protection System, developed a temporary emergency foster care model for children, tested in 11 provinces, and facilitated high-quality education for Syrian children through the PIKTES initiative, enrolling 818 531 refugee children by March 2023.

Green Deal

In 2023, the WBIF allocated an additional EUR 24 million to the regional Green for Growth Fund. This contribution, comprising of equity and technical assistance, is expected to mobilise EUR 231 million in energy-efficient and renewable energy investments by MSMEs, households, and municipalities. The goal is to expedite the energy transition and attain climate neutrality.

In Bosnia and Herzegovina, the WBIF supported initiatives with EUR 73 million in grants, including construction of two wind farms and upgrading of a hydropower plant. In Kosovo, the EU reduced environmental pollution through new waste disposal infrastructure and a solid waste collection facility, supported policy measures to accelerate the energy transition, and supported o ver 250 000 households through Kosovo’s Energy Support Package . In Albania, the EU has been developing waste management infrastructure in key areas, enhanced integrated water resources management with river basin plans, and launched a new programme aiming to enhance water quality and align with EU standards. In North Macedonia, the EU is reducing water pollution, addressing climate change, and promoting a green economy through advanced wastewater processing techniques. In Serbia, the EU improved environmental protection infrastructure, increased national capacities for climate change management, and i naugurated a gas interconnector with Bulgaria for energy diversification and security . In Türkiye, the EU focused on climate change mitigation, in particular support for the establishment of an emission trading system in the country, and adaptation, as well as marine life protection, waste management, and air and water quality, and supported Turkish municipalities in water and waste management services and smart urban mobility.

Sustainable growth and jobs

The EIP and the Green Agenda for the Western Balkans include measures to support job creation, particularly through the WBIF. In 2023, the Western Balkans Guarantee Facility endorsed two guarantees totalling EUR 70 million to support private sector development. In addition, the WBIF backed three flagship investments, including EUR 62 million from the EU and an estimated investment of over EUR 448 million from financial institutions.

In Kosovo, over 1 500 students, of which 38.33 % are women, obtained certification in highly demanded IT and business management qualifications. In Albania, the EU delivered incentive grants for small loans to small and medium-sized enterprises (SMEs) in agri-tourism via local financial institutions. In North Macedonia, the EU promotes greening and the transition to a circular climate-neutral economy, stimulating companies to innovate in a sustainable way, grow and create jobs in green business. EU also supports the development of the Prespa region, by promoting sustainable tourism. In Serbia, the EU supports community-based care and the de-institutionalisation of the social protection system, as well as labour market reform. In Bosnia and Herzegovina, the preparations are underway for a country-wide employment strategy. In Türkiye, the EU actively supports private sector competitiveness and productivity, emphasising the green and digital transformation. EUR 221 million is aimed to enhance economic resilience. Furthermore, the EU co-funds a supply chain finance programme in Türkiye with EUR 17 million together with EBRD, which will leverage an additional EUR 170 million in private funding and improve the competitiveness of SMEs and midcaps in Türkiye while stimulating the adoption of environmental, social, and governance principles and standards, strengthening their integration into European Value Chains. In addition, the EU funds socio-economic support for refugees through the Facility for Refugees in Türkiye, including training, skills transfer, and job counselling. By mid-2023, over 70 000 refugees were registered at the Turkish Employment Agency, with more than 66 000 completing vocational skills training and over 19 000 securing employment opportunities.

Digitalisation, science, technology and innovation

The EIP supports innovation, green growth, and aligns with the Green Agenda and the Innovation Agenda for the Western Balkans. It focuses on enhancing private sector competitiveness by ensuring affordable and diversified access to finance for start-ups and MSMEs. In addition, it addresses barriers to business climate development at local and regional levels.

In 2023, the WBIF supported the ‘Go Digital in the Western Balkans’ programme, aiming to provide over EUR 177 million in concessional financing to MSMEs in the region for digitalisation and enhanced competitiveness. Managed by the EBRD, this programme combines access to finance with tailored technical expertise for each company’s needs. In addition, WBIF initiated a call dedicated to business sector digitalisation, integrating research, development results, innovation, technology transfer, and enabling digital ecosystems.

In Bosnia and Herzegovina, the EU has significantly contributed to digital transformation in the judiciary. Further efforts focus on digital transformation as a cornerstone of Public Administration Reform, and supporting studies on legal environment, interconnectivity solutions, registries, and sectoral policy. In Kosovo, the EU assisted in the construction of the Faculty of Mathematics and Natural Sciences at the University of Pristina, and through the Council of Europe’s technical expertise supported the Judicial Council in producing its IT strategic plan 2024 to 2029 and helped putting in place a state-of-the-art eID system, in line with the eIDAS regulation. In Albania, the EU actively supports the innovation ecosystem by funding 33 start-ups and seven Innovation Support Organisations. In addition, the EU is introducing ICT in elementary schools through a project that aims to implement 684 smart ICT labs across 627 schools to enhance programming skills and promote digital literacy. In Montenegro, the EU supports innovative SMEs in the context of its Smart Specialisation Strategy (S3), including enhancement of the country’s administrative capacity and alignment to the EU acquis, as well as private sector competitiveness, with a focus on SMEs and female and young entrepreneurs. In North Macedonia, the EU provides budget support to help the country modernise and digitalise its public administration, and upscale the availability of e-services via a single Government portal. In Türkiye, the EU supports boosting the innovation capacity of the private sector and commercialisation of green and digital technologies, thus serving a wide range of sectors including algae bio-refining, food safety, autonomous vehicles, smart agriculture, deep technologies, life sciences, health, cancer treatment and infectious diseases.

Migration and forced displacement

The European Commission actively supports the Western Balkans in managing mixed migratory flows in line with international and EU standards. The efforts focus on enabling the region to participate in EU-level work and providing direct support for migrant reception conditions. Key agencies Frontex, Europol, and the EU Agency for Asylum (EUAA) play a crucial role in bringing the region closer to the EU.

Under IPA III, the EU has adopted EUR 291.9 million in financial support for migration and border management in the Western Balkans. These initiatives focus on implementing protection-sensitive migration systems, including identification, registration, and referral at borders. They also address migration statistics, asylum and reception systems, returns management, alternatives to detention, and legal protection for victims of human trafficking. In June 2023, implementation started for a new regional programme for the Western Balkans of EUR 36 million aimed at combatting migrant smuggling and trafficking in human beings. In November 2023, Frontex launched a new regional border security programme worth EUR 7 million, supporting the implementation of Frontex Status Agreements and alignment with EU standards for Integrated Border Management.

With EU support, the region collaborates closely with the EUAA to enhance asylum and reception systems. This is crucial for effective and humane migration management. Since 2019, roadmaps for all Western Balkans partners have been adopted to align their systems with EU standards.

In Bosnia and Herzegovina, the EU, with EUR 39.5 million, further supported reception capacities for voluntary and non-voluntary returns and signed a new measure worth EUR 6.4 million for integrated border management. The process of transition of migration assistance towards a country-owned system was also slowly initiated. In Albania, the capabilities of the border police to fight trafficking in human beings and irregular migration have improved thanks to the deliveries of modern equipment, renewal of maritime fleets and construction of two radar stations. In Montenegro, an action has been set up to assist the authorities in integrated border management and reduce irregular migration and cross-border crime, thus supporting the country’s Schengen Action Plan. In North Macedonia, the EU support will help to upgrade national technological and institutional capacities to identify, register, screen and treat the information on migrants and refugees in line with EU and international standards. In Serbia, the EU promoted the enforcement of the fundamental rights of vulnerable groups such as internally displaced persons.

In Türkiye, EU has focused on border management including purchase of border surveillance equipment and drafting a required border management strategy and action plan, as well as the operationalisation process of the National Coordination and Joint Risk Analysis Centre. Following the European Council’s decision of June 2021, the Commission allocated EUR 400 million to support migration management.

Governance, peace and security

A core objective of the EU’s engagement with the Western Balkans is to prepare them to meet all the requirements of EU membership. Fundamental democratic and rule of law reforms in areas such as justice, the fight against corruption and organised crime, democratic elections and parliamentary oversight, fundamental rights and freedoms, and good administration, are at the heart of this agenda and the work of the European Commission in support of the region.

In 2023, the EU continued to support justice system reforms in the Western Balkans, focusing on efficiency, independence, integrity and professionalism of the judiciary. To protect the Rule of Law and Fundamental Rights, the EU maintained its strategic partnership with the Council of Europe’s Commission for the Efficiency of Justice (with EUR 15 million from the third phase of the Horizontal Facility). In addition, EU collaborated with the European Judicial Training Network, and initiated judicial surveys with the World Bank. The cooperation with the Council of Europe allows IPA beneficiaries to access expert resources, including opinions of the Venice Commission. Other significant actions include sector reform support for justice in Serbia, Bosnia and Herzegovina, and Albania. The latter involves continued support to the temporary re-evaluation of judges and prosecutors. In Bosnia and Herzegovina, the second phase of the EU for Justice programme supports justice reform, strengthened independence, transparency, efficiency, and accountability, and equipping judicial buildings and the court police. The EU budget support programme supported Serbia to strengthen the independence, efficiency, and competences of its judiciary, improve the quality of judicial services to citizens and to raise the level of trust in the judicial system. In Türkiye, the EU launched of a grant scheme for legal aid services to vulnerable women, as well as the training of 586 lawyers on women’s access to justice.

In the fight against corruption, the EU extended its support to the OSCE through a EUR 5.8 million programme monitoring more than 250 cases of organised crime and high-level corruption and producing targeted recommendations to improve the track record of successful convictions and confiscations. The recommendations were endorsed at the EU-Western Balkan Ministerial Forum on Justice and Home Affairs held in Skopje in October 2023. In North Macedonia, the new Law on Whistleblower protection was finalised and published for public opinion with EU support. The role of civil society as watchdogs and forces of change in the fight against corruption was boosted with the launch of a new regional programme with Transparency International aimed at building capacities to detect and expose political corruption through integrity open data.

In the area of fundamental rights and freedom of expression, the EU continues to support civil society and independent media as well as responses to hate speech. At a regional level, international partners and civil society organisations are implementing programmes worth over EUR 60 million. For civil society, the EU support focuses on creating an enabling environment for CSOs, strengthening their capacity and resilience, and engaging them in areas such as Rule of Law, anti-corruption efforts, Human Rights, democratic participation, and the Green Transition. Regarding media, EU assistance aims to enhance the media environment by ensuring the safety of journalists, promoting public service media, combating disinformation, improving media governance, ensuring quality production, and fostering regional media networks. In Serbia, the EU assisted Serbian institutions in bolstering freedom of expression and media. In Bosnia and Herzegovina, through the partnership with the Council of Europe, EU promoted the right to justice and supported the first ever training of police officers from Brčko District of Bosnia and Herzegovina to counter hate crime and hate speech towards the LGBTI community.

As part of the renewed emphasis on the functioning of democratic institutions under the revised enlargement methodology, the EU supported the implementation of 72 electoral recommendations across the Western Balkans, through its continued support to ODIHR (EUR 1.5 million) and in cooperation with the EEAS. Moreover, through the technical support of the Horizontal Facility for the Western Balkans and Türkiye, the EU and the Council of Europe supported the Central Election Commission of Albania in launching the Electronic Platform on Financial Monitoring and Reporting, which facilitates the monitoring of the financing of political parties and electoral campaigns. Through the ‘Regional Programme on Local Democracy in the Western Balkans 2 (ReLOaD2)’, implemented by UNDP, the EU supported 62 partner local governments in setting up transparent public funding mechanisms for civil society, and the creation of youth platforms aimed at promoting the participation of young people in the local public sphere. In Albania, in preparation for the 2024 local elections, the Central Election Commission launched the Electronic Platform on Financial Monitoring and Reporting, with EU and Council of Europe support, to facilitate monitoring of political party financing and electoral campaigns.

In the fight against serious and organised crime, the EU remains committed to addressing cross-border criminal activities in the Western Balkans. EU Regional Security Programmes support cooperation within the region and between the Western Balkans and the EU. Agencies such as Eurojust, the European Union Drugs Agency (EUDA), Europol, Frontex and CEPOL collaborate to combat organised crime and terrorism. The EU continues to enhance cooperation with the Radicalisation Awareness Network in countering radicalisation and extremism. A regional project targeting regional resilience and capacity to resist cyber-attacks started in 2023. Cooperation with the Council of Europe on the fight against cybercrime will continue to build the capacities of the region in line with the Budapest convention. The Integrative Internal Security Governance mechanism launched a database of needs and actions in the region to counter terrorism, serious- and organised crime and border security. With EU help, Albanian police and customs officers have improved their capacity to prevent, detect and fight organised crime. In Serbia, in cooperation with the Council of Europe, IT equipment was provided to the National Anti-trafficking Co-ordination Office, the National Rapporteur on trafficking in human beings, the Centre for Human Trafficking Victims’ Protection and the NGO ASTRA. A new prison in Sarajevo for 150 inmates was finalised, and treatment of detained and sentenced persons was supported. In Kosovo, EU funding supported the adoption of the National Cyber Security Strategy 2023-2027 and Law on Cyber Security (2023), and the establishment of the Agency for Cyber Security.

EU also supported a regional response to the war crimes in the Western Balkans. In Bosnia and Herzegovina, grants totalling EUR 6 million for transitional justice and for the objectives of the Revised National War Crimes Strategy contributed to the processing of the most complex war crimes cases. Moreover, assistance via the International Commission on Missing Persons (EUR 3 million) supported the Missing Persons Institute and Prosecutors’ Offices. Demining activities implemented in Bosnia and Herzegovina and in Kosovo improved the safety of the local population.

The EU further supported good governance in public administration. In Kosovo, the digitalisation of the National Centralised Criminal Record was completed, allowing citizens to receive criminal record certificates within minutes. By December 2023, 268 474 certificates had been provided, enabling Kosovo to meet one of the requirements for Schengen visa liberalisation. The DEMOS project, implemented by EU, Sweden, Switzerland and Norway, funded 430 projects for local development and pushed forward the adoption of the new law on the performance management system for the municipalities. In North Macedonia, the EU supports the modernisation of public administration and improvement of statistical and financial data to enable evidence-based policy making and contribute to better economic governance, and increasing public trust. In Türkiye, flagship projects continued linking local governments and the business community with EU peers to address common challenges.

Territorial and cross-border cooperation

The flagship initiative of the Western Balkans strategy, ‘Supporting reconciliation and good neighbourly relations’, is the common thread for nine IPA cross-border cooperation (CBC) programmes and 15 INTERREG programmes with IPA participation (ten cross-border, three transnational programmes and two interregional) in the Western Balkans. In 2023, over 57 000 individuals, including 15 000 youth, profited from the 98 ongoing projects, as well as 1 358 organisations, including local and national government entities, civil society organisations, and businesses.

The IPA CBC programmes focused on resilience and disaster prevention, environmental protection, clean energy, public health, entrepreneurship, and professional training for young people. For example, enhancing capacities to respond to disasters and resilience along the border between Bosnia and Herzegovina and Montenegro, enforcing environmental standards in the municipalities of Kosovo-North Macedonia, strengthening disaster management in Montenegro-Albania, supporting capacities for reproductive health in Serbia-Montenegro and Montenegro-Kosovo, and vocational training and the establishment of social enterprises in Serbia-North Macedonia.

On regional integration, in 2023, the Regional Cooperation Council, along with other organisations such as Central European Free Trade Agreement (CEFTA), the Western Balkans 6 Chamber Investment Forum, and the World Bank, continued implementing the Common Regional Market action plan. A new agreement on the recognition of professional qualifications for nurses, veterinary surgeons, pharmacists, and midwives was signed at the Berlin Process Summit in Tirana in October 2023. Thanks to the ratification of the agreement on freedom of movement with ID cards, approximately 13 million Western Balkan citizens can now travel between countries without a passport in just three months of implementation. 

In 2023, CEFTA programmes advanced trade negotiations, emphasising customs risk management, dispute resolution, and statistical collaboration. The Systematic Exchange of Electronic Data platform streamlined pre-arrival customs data exchange, reducing border-crossing time. It also facilitated certificate exchange between customs and phytosanitary authorities. Enhanced trade surveillance mechanisms for phytosanitary products included pest-specific contingency plans and surveys. Pilot initiatives extended to electronic certificates with veterinary and medical agencies. Market surveillance authorities also gained from a shared regional database on unsafe products.

In October 2023, the EU and the Western Balkans reached a voluntary agreement to lower roaming charges. The benefits are already evident: three operators from different Western Balkan partners have significantly reduced regular roaming prices within the EU (between 95 and 99 %), and several Western Balkan operators now offer data at less than EUR 2 per gigabyte. Further reductions are planned, aiming to make data roaming prices comparable to domestic rates by 2028.

Food security and nutrition

In Kosovo, EUR 13 million of support helped to transform the Food and Veterinary Agency into an executive agency with five regional offices responsible for control of the entire food chain, from farm to fork. In Albania, EU support focused on establishing a sustainable food system, aligning food safety strategies, and harmonising controls with EU standards. In North Macedonia, alongside the new IPARD III rural development programme, the EU promotes agricultural competitiveness, implements Common Market Organisation measures, and supports farmers and irrigation schemes. In Türkiye, EU assistance in the animal health sector prevented Lumpy Skin Disease (LSD) and rabies outbreaks. The IPARD programme in Türkiye has generated around 80 000 rural jobs, with at least 20 % of investments led by women entrepreneurs. In Bosnia and Herzegovina, the EU4AGRI project aided in drafting a state law on wine market organisation, addressing a long-standing priority under acquis Chapter 11.

Case study

4.5.3.    Humanitarian aid and civil protection – responding to the emergency needs of people affected by conflicts and disasters

In Türkiye, close to 3.7 million refugees needed humanitarian support in 2023. This included around 3.4 million Syrians under temporary protection and over 300 000 international protection status holders, asylum-seekers of other nationalities and stateless persons.

In February 2023, two earthquakes caused massive destruction and suffering in southeast Türkiye, creating new needs among both refugees and the Turkish population. This disaster further exacerbated the living conditions of the already vulnerable refugees. In 2023, the EU provided EUR 78.2 million in humanitarian funding for the earthquake response. EU´s major cash assistance programme, the Emergency Social Safety Net (ESSN) was successfully handed over from humanitarian to development funding under the European Commission in July 2023, in line with the EU humanitarian-development-peace nexus approach.

Western Balkans

More than 110 000 refugees and migrants have arrived in Bosnia and Herzegovina via the Western Balkans route since 2018. In 2023 the EU allocated EUR 2.63 million in humanitarian aid, addressing the most urgent needs and allowing the beneficiaries to access protection, basic health care services, mental health and psychosocial support. In addition, support was provided to Albania during the forest fire season.

4.5.4.    Crisis response and preparedness

In the Western Balkans new crisis response initiatives seek to increase resilience to the intensified hybrid attacks focused on disinformation and cyber-security linked to Russia’s war of aggression against Ukraine.

In Bosnia and Herzegovina, the EU boosted efforts for reconciliation and unity through a dedicated crisis response measures, seeking to create a critical mass for reconciliation and unity by working with communities and authorities at the local level and connecting initiatives at the national level.

In Kosovo, the EU Rule of Law Mission in Kosovo (EULEX Kosovo) continued to monitor selected cases and trials in Kosovo’s criminal and civil justice institutions with a view to supporting the rule of law system in Kosovo, including the Kosovo Correctional Service. The EU also supports the Kosovo Specialist Chambers (KSC) and Specialist Prosecutor’s Office (SPO) which prosecute and adjudicate criminal charges arising from investigations.

The EU Special Representative (EUSR) for the Belgrade-Pristina Dialogue and other Western Balkans regional issues engages with the regional partners to achieve a comprehensive normalisation of relations between Serbia and Kosovo, improve good neighbourly relations and promote reconciliation.

The EUSR in Kosovo plays a key role in promoting a stable, viable, peaceful, democratic, and multi-ethnic Kosovo and strengthen stability in the region, while contributing to regional cooperation and good neighbourly relations in the Western Balkans.

The EUSR in Bosnia and Herzegovina (BiH) focuses on fostering progress in the Stabilisation and Association Process, ensuring a stable, viable, peaceful, multi-ethnic and united BiH that cooperates peacefully with its neighbours and ensuring that BiH is irreversibly on track towards EU membership.

The EU shares efforts with the Organisation for Security and Co-operation in Europe (OSCE) to combat illicit trafficking of Small Arms and Light Weapons (SALW) and Conventional Ammunition in southeastern Europe. Within the region, the roadmap on comprehensive SALW control was adopted in 2018, and in 2023 it was decided to prolong the activities until 2030. Activities aim at reducing the risks of SALW proliferation and mitigating security and safety risks related to the illegal possession, misuse and trafficking of SALW in Albania, Bosnia and Herzegovina, Kosovo, North Macedonia, and Serbia.

In the context of the EU Strategy to combat illicit accumulation and trafficking of SALW and their ammunition, and in the context of the implementation of the Roadmap on SALW control, the EU is supporting projects in Serbia, Montenegro, Bosnia and Herzegovina, North Macedonia, Albania, Kosovo, Moldova and Ukraine through the South-eastern and Eastern Europe Clearinghouse for the Control of Small Arms and Light Weapons (SEESAC). SEESAC ensures that arms control legislation, policies and practices are in place and are fully harmonised with the EU and international obligations and standards.

4.6.    Overseas countries and territories (OCTs) 

4.6.1.    Introduction (policy developments)

The Overseas Countries and Territories (OCTs) are not sovereign countries but maintain special constitutional links with three Member States (Denmark, France and the Netherlands) and embrace an increasingly strategic role for the EU. They are important EU ambassadors in their regions and bring with them important assets, such as vast exclusive economic zones, highly relevant for ocean governance and the preservation of maritime biodiversity, host strategic infrastructure (Galileo) and avail of many critical raw materials. At the same time, the OCTs benefit from the EU’s significant expertise in sustainable development and the green transition as well as privileged access to the EU market. The Decision on the Overseas Association including Greenland (DOAG) of 2021 frames the EU-OCT political and policy dialogue, trade, and financial support of the EU for OCTs’ actions. It contributes to their economic and social development and helps them in tackling challenges such as climate change and biodiversity loss.

The EU has earmarked financial support of EUR 500 million to the OCTs for 2021-2027. The resources available to the OCTs are allocated as follows: EUR 225 million for bilateral cooperation with Greenland, EUR 164 million for bilateral cooperation with other OCTs, EUR 76 million for regional cooperation and integration (including EUR 15 million for intra-regional cooperation), a non-allocated reserve of EUR 13 million for emerging needs, and EUR 22 million for technical assistance. During 2023, OCTs benefitted from actions implemented under the DOAG but also from ongoing programmes funded under the European Development Fund (EDF).

The priority areas for cooperation with the EU are digital, climate, energy (water and sanitation), transport, and education in line with the EU twin transition goals and the objectives of the Global Gateway strategy. Promoting regional and intra-regional cooperation in these priority areas in the Arctic, the Caribbean, the Indian Ocean, the Atlantic and the Pacific is of paramount importance to support sustainable development of the OCTs.

The institutional dialogue between the EU and the OCTs is provided for in Article 14 of the DOAG. While the annual OCTs-EU Forum brings together OCT authorities, Member State representatives and the Commission, tripartite consultations are organised four times a year to follow up on issues of common interest. In 2023, the institutional EU-OCTs dialogue was held regularly, with preparations for the next edition of the Forum in February 2024 in Brussels having started in the last quarter of 2023.

Due to their geographical location and historical background, the EU outermost regions (ORs) hold strong historical, social, environmental, cultural and other ties with OCTs. The new Agenda for relations between the EU and Latin America and the Caribbean (LAC) highlights the presence of the EU in this region, through the EU outermost regions, as an asset for this partnership, and envisages to strengthen cooperation between LAC, outermost regions and the OCTs.

In addition, under the Partnership Agreement between the EU and the Organisation of the African, Caribbean and Pacific States, signed in 2023, the protocols for Africa and the Caribbean encourage regional cooperation with outermost regions and OCTs. In addition, the Commission upgraded the external dimension of the INTERREG programmes 2021-2027 for the outermost regions by providing that projects should involve at least one neighbouring partner country and/or an OCT.

4.6.2.    Implementation

Human development and inequalities

EU cooperation helps OCTs in reducing inequalities, for instance by reaching out to deprived neighbourhoods or by making education opportunities more inclusive. Cooperation on urban infrastructures (mainly street lightening, paved streets as well as sewage infrastructures) in the most deprived neighbourhoods of Curacao has resulted in important and sustainable impacts by strongly improving the quality of life of inhabitants during 2023.

A good education for all is the best equaliser in society. It allows all citizens to improve their livelihood opportunities and to shape their own future. This is why, in Greenland, the past and present EU cooperation continued delivering in 2023 by putting a strong emphasis on improved access for all children to pre-school education, which lays the ground for future economic security independent of starting conditions. As a result 76 % of Greenland’s children attend preschool, 7 % higher than 10 years ago and has consistently been on the rise. This is a particular success in hard-to-reach rural areas, where coverage has increased by almost 10 %.

Gender equality is an important cross-cutting theme of EU OCT cooperation. New actions during 2023 included gender-sensitive indicators and sex-disaggregated data, whenever possible.

Green Deal

EU-OCTs partnership promotes long-term sustainable economic development and welfare and the Green Deal has been pivotal for the partnership given the specific vulnerabilities and needs of the island OCTs. In 2023, new actions on biodiversity and marine ecosystems, on water management, as well as digital technologies, circular economy and investments for sustainable growth and jobs were undertaken.

The ongoing all-OCT Thematic Programme ‘Green Overseas’ and the Caribbean, Indian Ocean and Pacific regional programmes (for a total of EUR 97.8 million) from the 11th EDF are all dedicated to ensuring the sustainable use of natural resources, protecting biodiversity and supporting climate actions and resilience, showing the vital importance of these areas to all OCTs. New regional actions for 2021-2027 (EUR 36 million for the Pacific OCTs, EUR 21 million for the Caribbean OCTs and EUR 4 million for the French Southern and Antarctic Lands (TAAF)) are building on these achievements, allowing the OCTs to better adapt to the effects of climate change and protecting and restoring terrestrial and marine ecosystems. In the case of Saint-Barthélemy (EUR 2.5 million for 2021-2027) the EU is supporting disaster risk management.

In addition, the BEST Initiative for the period 2014-2020 has helped OCTs to promote the EU's environmental standards and provided an incentive for local actors to engage in environmental actions. The dedicated component of the LIFE programme for 2021-2027 for Outermost Regions (ORs) and OCTs (BESTLIFE 2030) has continued to scale up in 2023 the actions in OCTs on biodiversity and nature conservation.

As part of the broader EU support to sustainable development in the OCTs, access to water and sanitation, healthier drinking water, integrated management of water resources, the construction of water collection systems and also of treatment facilities all contribute to delivery on SDG 6. This is in particular the focus of the 2021-2027 cooperation with French Polynesia (EUR 31.1 million), Bonaire (EUR 4.6 million), decided in 2023, and Curacao (EUR 18.6 million).

A major focus of EU-OCT cooperation for the period 2021-2027 supports the sustainable energy transition in New Caledonia (EUR 30.9 million), Saba (EUR 4.1 million) Greenland (as part of the EUR 22.5 Green Growth component) through budget support and Sint Marteen (EUR 7.7 million), decided in 2023.

For New Caledonia, the programme contributes to the decarbonisation of the mining industry, a main driver of the economy and responsible for 77 % of the territory's total energy consumption and it aims at a decarbonised, resilient and affordable energy autonomy. In Saba and Sint Maarten, the EU helps to accelerate the transition to a low carbon economy and a substantially improved energy mix with more renewables and increased energy efficiency (the target for Saba is 60 % of renewable energy production by 2025).

In Greenland, the target is to increase renewable energy in public electricity provision to 90 % of the total in the coming years. Since 2023, the EU also looks into teaming up with Greenland in the domain of raw materials, critical for the clean energy transition. A Memorandum of Understanding (MoU) establishing a Partnership on Sustainable Raw Materials Value Chains was signed between the EU and Greenland in November 2023.

Sustainable growth and jobs

Sustained economic growth, full employment and decent work will be advanced through the work of the EU for 2021-2027 to support sustainable tourism (Saint Pierre et Miquelon, EUR 27 million), sustainable agriculture (Sint Eustatius, EUR 2.9 million), and some actions decided in 2023: green growth (Greenland, EUR 22.5 million), e-government (Aruba, EUR 14.2 million), and a new programme on socio-economic development by supporting, in particular, sustainable tourism (Wallis and Furtuna, EUR 20.4 million).

The EU budget support operation in Saint Lucia ‘Generating Employment and Private Sector Development’ supported the effective implementation of the national TVET Policy and Strategy by investing in quality education inclusive of vulnerable groups. This helped to place 829 interns on job attachment within the private sector and facilitated 532 new TVET Certifications (N/CVQs). During 2023, EU support continued to increase the issued TVET certifications and facilitated internship opportunities. The number of issued certifications more than doubled from 500 (in 2019) to 1 032 (in 2022), of which 60 % were women and girls, along with 829 trainees able to access an attachment programme that lasted for three months. Some of the key sectors with increased certifications were primary enablers of Global Gateway in Saint Lucia, including from ICT/digital training to coral reef gardening and restoration skills development.

Digitalisation, science, technology and innovation

Connectivity is one of the priorities of EU’s strategic partnership with OCTs, leading to more prosperous, open, and inclusive societies. The intra-regional cooperation envelope under the DOAG, adopted in 2023, represents a perfect opportunity to deepen our ties on sustainable connectivity to drive the green and digital twin transition under the Global Gateway strategy. In the Caribbean OCTs, digital connectivity is currently being explored.

Cooperation with Aruba is a good example of how the EU fosters innovation. For the period 2014-2020, under the 11th EDF, the EU and the University of Leuven joined hands with Aruba to put in place a Science, Technology, Engineering and Mathematics (STEM) faculty, including research facilities and laboratories, with the capacity to train 29 bachelor’s students, five master’s students, 10 PhDs and one post-doc student in 2023. Building on these achievements, the EU is teaming up with Aruba for 2021-2027 through a EUR 14.2 million budget support programme, decided in 2023, to roll out its ambitious e-government-strategy including the setting up of e-government work processes, an e-ID system and a cybersecurity policy framework as well as the introduction of digital payments. Aruba's digital transformation aims to ease digital access to government services and unlock new economic opportunities for all, including women and youth.

Furthermore, at the end of 2023, 13 hotspots connected to the fibre cable infrastructure created an emergency public Wi-Fi network to allow Saint-Barthélemy’s inhabitants to keep communicating and get help in post-disaster situations.

Governance, peace and security (and conflict prevention)

The principle of partnership is deeply embedded in the EU-OCT political and policy dialogue and cooperation on issues of common interest. All EU-funded actions in the OCTs intend to reinforce the capacity, the accountability and inclusiveness of their institutions. This is often best achieved through a mix of budget support, policy dialogue on sector reforms and cooperation on public financial management.

Recently, the partnership has been further reinforced by including dedicated cooperation on youth engagement. A new initiative, the OCT Youth Network, was launched in July 2022 by the EU with the aim of increasing the ties between young people living in OCTs and the EU and enhance the knowledge and involvement of young people in the EU-OCT partnership. A second round of the OCT Youth Network was launched in July 2023.

Food security and nutrition

OCTs share particular vulnerabilities, resulting in a complex set of food security and nutrition challenges. For 2021-2027, the EU is supporting sustainable agriculture, food security and nutrition in several OCTs.

The regional Pacific Multi-annual Indicative Programme (EUR 36 million) foresees promoting sustainable and healthy food consumption, and ensuring that citizens are better informed to choose healthier and more sustainable diets. The regional Caribbean Multi-annual Indicative Programme (EUR 21 million) and the cooperation with Sint Eustatius (EUR 2.9 million) aim at strengthening food and nutrition security through the development of sustainable and resilient local food value chains. Formulation of both these programmes started in 2023.

Case study

5.    Managing Aid 

5.1.    Monitoring, reporting and evaluation

5.1.1.    Reporting

Reporting on NDICI-Global Europe instrument

The NDICI-Global Europe instrument has introduced a set of requirements to monitor and report on progress towards its objectives throughout its implementation. The Global Europe Results Framework (GERF) is the main tool which has been specifically developed to meet these monitoring and reporting requirements. The GERF includes all key performance indicators contained in Annex 6 of the Regulation establishing the instrument. They are used together with data from other existing results reporting, external monitoring reviews and evaluations to assess the extent to which specific objectives have been achieved. Reporting requirements cover all regions and modalities established by the NDICI-Global Europe instrument, including the European Fund for Sustainable Development (EFSD+).

2023 is the third year of financial execution of the NDICI-Global Europe instrument. Therefore, and as announced before, the first operational results have just started to materialise. Due to the inevitable time lag between financing an intervention and implementing the action and generating results, only few results – in terms of outputs or outcomes of NDICI-Global Europe funded interventions – can be reported so far, which was as expected. This time lag between financing and results is a structural feature that is common to any multiannual financial framework (MFF) cycle. As the same is true for the previous MFF, annex 6 presents both the results of the current and the previous MFF. Results data presented in chapter 3 of this report refer to results achieved from ongoing interventions, financed both under the previous and the current MFF.

Reporting on IPA III instrument

The IPA III instrument (Instrument for Pre-Accession) has introduced a set of requirements to monitor and report on progress towards its objectives throughout its implementation. The IPA III Programming Framework is the overarching strategic document for the implementation of IPA III under the current MFF, replacing the former country-specific strategy papers. It focuses on the priorities of the enlargement process according to five thematic Windows( 95 ), which mirror the clusters of negotiating chapters as per the revised enlargement methodology. It also provides an indicative financial overview per Window and programming year. Each thematic Window, with a number of thematic priorities, incorporate indicators, including baselines, milestones and targets, to monitor implementation and achievement of objectives of the IPA III Programming Framework.

The basis for IPA III programming, monitoring, reporting and evaluation is the IPA III Results Framework( 96 ). Other existing results reporting, external monitoring reviews and evaluations to assess the extent to which specific objectives have been achieved complete the set of tools.

2023 is the third year of implementation of IPA III. Therefore, and as announced before, the first operational results have just started to materialise as of 2023, given the programming and implementation cycle. Similar to the NDICI-Global Europe as mentioned above, due to the inevitable time lag between financing an intervention, only few results – in terms of outputs or outcomes of IPA III-funded interventions – can be reported so far. Results data presented in chapter 3 of this report refers to results achieved from ongoing interventions, financed both under the previous and the current MFF.

5.1.2.    Monitoring Systems

Over the course of the past years, the European Commission has engaged substantially in designing tools and processes for results-based management of EU contributions in the field of external cooperation. This is to facilitate monitoring and results reporting processes and to respond to the growing need for data to capture the results of the implementation of EU external instruments. It is set in a wider transition, moving from a focus on inputs (mostly financial) to capturing the EU contribution in the field of external cooperation, an area where being able to measure the impact of actions on target populations and systems is essential.

There are various monitoring arrangements (internal and external) in place focusing on different aspects of results-oriented monitoring such as implementation progress and achievement of objectives. Among these, results-oriented monitoring (ROM) reviews support operational staff providing an external and impartial assessment of ongoing interventions. The number of ROM reviews performed in 2023 was 525 under NDICI-Global Europe and about 60 under IPA.

The IT platform OPSYS is now used as a single tool to capture results for corporate reporting and management. OPSYS creates a digital repository of EU-funded operations, and provides a central access to all stakeholders involved, both inside and outside the European Commission. It assumes a pivotal role in ensuring that the European Commission can deliver on the ambitious reporting obligations as set out for the implementation of the NDICI-Global Europe and IPA III instruments in the years to come.

Throughout the year, the European Commission services and implementing partners perform monitoring activities via the same tool, including direct reporting by implementing partners and European Commission staff; and data aggregated for reporting at Headquarters, etc. At the end of 2023, there were 12 932 primary and non-primary interventions encoded in OPSYS and 1 201 NDICI-Global Europe primary interventions were involved in the last results reporting exercise.

5.1.3.    Reporting on Sustainable Development Goals (SDGs)

In 2023, the European Union presented its first Voluntary Review on the implementation of the 2030 Agenda for Sustainable Development (EUVR)( 97 ). The publication of this EUVR was a major milestone in the EU’s SDG reporting. Carried out in line with the UN voluntary common reporting guidelines and based on broad consultations, the EUVR shows how the EU is adding value to implementing the 2030 Agenda both inside the EU and around the world. Besides a main report, the EUVR also included an accompanying document highlighting progress for each of the 17 SDGs. Furthermore, the EUVR was comprised of a statistical annex containing detailed new graphs on SDG interlinkages, as well as documents on the participation of youth in implementing the 2030 Agenda at EU level and a report on the consultations held as part of the review. The EUVR was successfully presented at the United Nations High-level Political Forum on Sustainable Development (HLPF) in July 2023.

Since 2019, the Commission has been reporting on official development assistance (ODA) to the SDGs, in accordance with a decision from the Working Party on Development Finance Statistics of the OECD’s Development Assistance Committee (DAC).

Targeted SDGs are recorded at commitment and payment level as per the taxonomy for ODA reporting. Our reporting considers the transversal and interlinked nature of SDGs, as one single commitment is often connected to several SDGs. Therefore, it is mandatory to report one single main SDG and, where applicable, up to nine other SDGs to which a project contributes significantly. With this system, the sum of financial flows related to the main SDG will always equal the total amount of financial flows, yet it is possible to report several SDGs for one project by using the ‘significant’ SDG field. As a result, a better understanding of the interlinkages between SDGs can be obtained.

Figure 1. Synthesis of the volume of commitments for each SDG

(as main SDG and significant SDG) in 2023

Table 14. Volume of commitments for each SDG in 2023 (EUR)

As can be seen from Figure 1 and Table 14 above, SDGs 1, 3, 4, 8 and 16 received the largest financial flows as main SDGs in 2023. During the same period, SDG 5 is most targeted by projects as a significant SDG, followed by SDGs 8, 10 and 16. This underlines the particularly strong transversal nature of those SDGs that primarily seek to reduce social and economic inequality and strengthen institutions. In particular, it is worth flagging the large amount for projects that contribute significantly to SDG 5 (Gender equality). This confirms the high level of gender mainstreaming across EU external action projects.

It is also possible to analyse targeted SDGs by the income group of countries, showing how EU priorities are implemented depending on countries’ income levels.

Figures 2 and 3 below show the SDGs targeted by the European Commission in Least Developed Countries (LDCs) and Upper Middle-Income Countries (UMICs) in 2023. In the case of LDCs, SDGs 1 and 4 dominate as main SDGs, while more transversal SDGs are marked most often as ‘significant’. In the case of UMICs, main SDGs are more evenly spread but SDGs 10 and 7 dominate as main SDGs.

Figure 2. Commitments by SDG to LDCs in 2023 (million EUR)

Figure 3. Commitments by SDG to UMICs in 2023 (million EUR)

The efforts made by the Commission to strengthen its data and tools for SDG reporting, have been highly instrumental in informing the 2023 EU Voluntary Review (EUVR) on progress in the implementation of the 2030 Agenda for Sustainable Development. For example, the Statistical Annex of the EUVR included a series of detailed graphs on interlinkages for each of the 17 SDGs. The EUVR also provided detailed information on EU and Member States external financial support for SDG implementation and results, for each of the 17 SDGs. In 2023, the Commission has also successfully filled gaps in its data for SDG reporting. As a result, all contracts have now been assigned main and significant SDG indicators.

5.1.4.    Evaluation: review of the work programme 

European Commission evaluation services are responsible for steering, coordination, monitoring and reporting of the evaluation function. They produce timely, high-quality evaluation results to ensure evidence for informed decision-making and accountability. They carry out strategic evaluations, which can be geographic, thematic, sectoral or focused on specific financing instruments or budget support. They also monitor and support the evaluations carried out by other European Commission services that implement various projects and programmes. In 2023, 124 evaluations of this type were completed, while 114 were launched and on-going. Also in 2023, the European Commission completed five strategic evaluations in the field of European Union’s external and humanitarian action, comprising:

1)Thematic or partnership evaluations, including in the humanitarian sector:

·Mid-term evaluation of the implementation of the European Union's Gender Action Plan III.

·Evaluation of the European Union’s ‘Collect More, Spend Better’ approach: Public Finance Management (PFM) including domestic resource mobilisation and utilisation (2015-2020).

·Evaluation of the European Union’s cooperation with the United Nations in external action (2014-2020).

2)Country or regional level evaluations:

·Evaluation of the European Union’s cooperation with the Federal Republic of Somalia.

·Evaluation of the European Union’s cooperation with Papua-New Guinea.

By the end of 2023, other strategic evaluations were in progress for the following areas:

3)Four thematic or partnership evaluations, including three in the humanitarian sector:

a)Mid-term evaluation of the European Union’s External Financing Instruments.

b)Evaluation of the contribution to the implementation of the Sustainable Development Goals (SDGs), by the European Union’s external action (2016-2021).

c)Evaluation of the European Union’s cooperation with the World Bank (2014-2021).

d)Evaluation of the European Union’s Trust Fund Bekou for the period 2014-2023.

4)Two country or regional level evaluations:

a)Evaluation of the implementation of the European Union’s cooperation with the Federal Democratic Republic of Nepal (2014-2021).

b)Evaluation of the European Union’s cooperation with South Sudan (2011-2023).

5)One budget support evaluation on:

a)Evaluation of the European Union’s budget support operations in Jamaica (2008-2021).

5.1.5.    Lessons learned 

Mid-term evaluation of the implementation of the European Union's Gender Action Plan III

This evaluation looked for lessons learned and good practices from the Gender Action Plan (GAP) III half way through its implementation period (years 2021-2022). The aim of GAP III is to accelerate progress towards gender equality and women’s and girls’ empowerment in the European Union’s external policies and actions.

The review focused on GAP III policy and strategic framework and on the design and implementation of country level implementation plans (CLIPs), with also a particular attention to women’s economic empowerment (WEE) and to women, peace and security (WPS). Among the conclusions highlighted in the evaluation report is the finding that the GAP III has contributed to a broader, deeper approach to gender equality in external action. There are Gender Equality and Women’s Empowerment (GEWE) elements now to be found in virtually all sectors, including the ‘non-traditional’ ones where the evaluation found some excellent examples of actions which significantly mainstream GEWE, with positive results. Once confined largely to grants and international organisation contribution agreements, GEWE response is now represented halfway through the GAP III implementation period in almost all modalities (except, perhaps, Macro-Financial Assistance or MFA).

Evaluation of the European Union’s ‘Collect More, Spend Better’ approach: Public Finance Management (PFM) including domestic resource mobilisation and utilisation, 2015-2020

The evaluation concluded that the EU had demonstrated a pragmatic and comprehensive ‘Collect More, Spend Better’ (CMSB) approach at the country level, well adapted to different contexts and needs but hindered by the slow pace of PFM reform and implementation.

At the country level, the EU’s approach was pragmatic and adapted to different contexts and needs. It was facilitated by a mix of aid modalities and instruments but underestimated the strong political economy dimension of PFM reforms. The EU’s CMSB support was often scattered, with few synergies within the country portfolios and with other EU interventions. Moreover, the EU relied on a useful mix of EU aid modalities and instruments at the country level, but with a wide spectrum of interventions leading to some dispersion with limited synergies. The active implementing role kept by the EU allowed more joint and coordinated responses at the international level, albeit with limited influence on strategic orientations.

Evaluation of the European Union’s cooperation with the United Nations in external action (2014-2020)

This evaluation was structured around six major blocks:

1.EU influence and visibility: what the EU wants from the UN System.

2.Reinforced multilateralism: what the EU wants for the UN.

3.Results across thematic areas (Green Deal, digitalisation, sustainable economic, human and social development, migration and forced displacement).

4.EU-UN cooperation for efficient delivery.

5.UN ‘Delivering as One’.

6.Value added.

The evaluation concluded that the overall legal, financial, and administrative framework put in place by the EU for its cooperation with the UN broadly met the challenge of harmonising implementation arrangements and mechanisms for the cooperation between two such large and complex families as the EU and UN. It worked well in facilitating the management of EU-funded interventions by UN entities, while offering safeguards to the EU for ensuring it could meet its own obligations on management of EU funds, despite some difficulties and challenges in the application of this framework.

Evaluation of the European Union’s cooperation with the Federal Republic of Somalia (2014-2021)

The EU had supported Somalia prior to 2014, but the EU’s engagement post-2014 became strongly motivated by the broad and ambitious peace-building and state-building goals of the ‘New Deal’ – a pledge of EUR 1.8 billion by the EU and other international partners to help Somalia end more than two decades of conflict. During the period of 2014-2021, the time horizon examined by the evaluation, the EU’s development cooperation in Somalia was based on the state-building ambitions and objectives formulated in the ‘Somali Compact’, the key policy and planning document of the Somali Government when rebooting its state-building process in 2012/2013.

The EU’s strategic engagement deepened in 2017/2018 with the move of the EU Delegation to Mogadishu, a new EUR 100 million general budget support programme launched in 2018, and a shift to a more integrated approach (better linking the different EU services, sectors and interventions), making the EU’s cooperation more comprehensive and enabling it to become more of a strategic player in Somalia.

Evaluation of the European Union’s cooperation with Papua New Guinea (2014-2021)

This evaluation provided an independent assessment of the performance of the EU support to Papua New Guinea (PNG) from 2014 until the end of 2021 in the areas of rural development and trade, water sanitation and hygiene, human resources development, forestry climate change and biodiversity, human rights, peace-building and gender equality.

It showed that the EU support was well embedded in PNG national reform agendas and policy frameworks, that it contributed to improved public policies and regulatory frameworks as well strengthened capacities, which resulted in better service delivery. However, challenges persist in all sectors of the EU support, including a level of Government commitment lower than expected and the limited choice of Implementing Partners in the country.

5.2.    Aid delivery modalities 

5.2.1.    Budget Support 

Altogether EUR 1.486 billion of EU budget support were disbursed in 2023. It accounted for 15 % of all payments under NDICI-Global Europe, IPA III, DOAG and predecessor instruments with still on-going operations. It consisted respectively of EUR 981 million in Western Balkans and European Neighbourhood and EUR 505 million in sub-Saharan Africa, Americas and the Caribbean, Asia and the Pacific and Overseas Countries and Territories. Further details of the geographic and financial distribution of the budget support portfolio and of related payments are provided in Annex 7.

EU budget support is a policy and a results-based instrument. The success of countries’ policies is at the core of each budget support operation with the reforms and investments that they imply. These features make budget support a pivotal instrument for the success of the Global Gateway Investment Agenda. A better investment climate in partner countries constitutes the bedrock on which Global Gateway investments can yield returns and benefits to all, within a 360-degree approach encompassing institutional strengthening, regulatory aspects and values at the core of the Agenda. It notably helps partners tackle challenges posed by climate change and combine their growth agenda and the development of sustainable value chains with environment and biodiversity protection.

The first performance incentive coming with budget support lies in the four criteria conditioning its provision: a relevant and credible public policy, stability-oriented macro-economic policies, progress in public finance management and revenue mobilization, and budget transparency and oversight. Results are further incentivised by performance tranches whose amounts are disbursed proportionally to the achievement of specific targets drawn from countries’ policies. By working through country systems and thereby strengthening them, EU budget support fosters partners’ capacities to sustain results. Budget support generally comes with a complementary component for dedicated technical assistance and capacity development for that purpose. It fosters domestic accountability around these results, supporting civil society organisations as allies for transparency.

EU budget support is an asset for ‘Team Europe’ members( 98 ) as a platform for policy dialogue with partner countries to promote regulatory reforms in priority sectors, in particular alongside or ahead of Global Gateway flagship projects. It allows the EU to team up with partner countries when they design and implement their reform agendas, promoting green, gender-sensitive and inclusive policies.

Budget support assists countries in fostering their economic governance. A conducive investment climate involves a sound macro-economic framework for long-term investments favouring growth and transition to a green economy, or helping restoring imbalances where needed. Attention must be paid to debt vulnerabilities and solutions to address these, including innovative ones (e.g., climate resilient debt clauses, debt swaps, etc.) and supporting debt management capacities. This also implies sustainable fiscal policies to cater for the maintenance of investments and associated running costs. Contributing to debt sustainability is a policy objective for the EU, notably through the EFSD+.

Delivering on the ‘Collect More, Spend Better’ approach agenda, integrating the revenue and spending sides of public finance management, is equally at the core of the investment climate. It is often the other side of the conversation on the business environment in partner countries. This is notably true for public procurement, public investment management, taxation (equity, transparency and predictability), customs administrations (critical for trade facilitation and the fight against illicit trade) and the fight against corruption. Working on green public finance management and resource mobilisation can also steer public and individual behaviour towards sustainable choices.

In addition, EU budget support was instrumental in 2023 in helping Ukraine and neighbouring countries to cope with the consequences of the Russian war of aggression against Ukraine. When applicable, budget support was provided in full complementarity with EU macro-financial assistance (MFA) and in particular with the MFA+ scheme of EUR 18 billion for Ukraine in 2023.

EU budget support was notably instrumental in assisting countries facing shocks on their energy supply with dramatic consequences for households and country’s economy. Against this background, the EU provided EUR 500 million under the Energy Support Package channelled through budget support as State and Resilience Building Contracts to six Western Balkans partner countries. It mitigated the socio-economic impact of increased energy prices and rising costs of living through short- and medium-term actions and policy measures. More than 400 000 vulnerable households in Bosnia and Herzegovina, Serbia, Kosovo and Montenegro benefitted from financial support to overcome energy poverty. In North Macedonia, 374 schools and 32 heath care facilities benefited from support to cope with electricity prices. Moreover, the government of North Macedonia mobilised EUR 85 million through the Climate Investment Fund for implementation of the key decarbonisation projects identified in the Action Plan and announced during the COP28 meeting.

Complementing the budget support energy package, the EU provided an additional EUR 500 million through the Western Balkans Investment Framework to advance energy diversification, renewable energy generation and gas/electricity interconnections. This aimed at facilitating the energy transition in the business sector over the short and medium term. For example, one of the flagships infrastructural projects, the Kostolac Wind Farm in Serbia, has started to install a 66-MW wind farm on the site of depleted open-cast mines. Completion is expected in 2025.

Budget support is leaving no one behind. It continues to prove very relevant to support countries in situations of fragility or facing crisis and external shocks. It helps them to secure stability in the first place (with ‘Team Europe’ members and together with the IMF, the World Bank and other relevant partners), contributing to improved fiscal space and bringing them back on track to pursue critical reforms for governance and in the delivery of key public services.

This also helps bring vulnerable countries closer to opportunities offered by the Global Gateway strategy. However, the instrument could not be used to its full extent in 2023 given political blockages in some countries, which hindered direct cooperation with authorities and prevented the provision of budget support, where it would be needed.

In 2023, in view of protracted crises in various parts of the world, the use of budget support designed for situations of fragility and crises, the State and Resilience Building Contracts (SRBCs), continued to increase with 65 % of new operations. Sector Reform Performance Contracts (SRPCs) accounted for 31 % of the new decisions. Only one SDG Contract, the other type of general budget support beside SRBCs, was adopted in 2023 (Côte d’Ivoire) accounting for 4 % of all new commitments. As a whole, the decisions on new budget support programmes amounted to EUR 1.279 billion, of which EUR 747 million was for countries in the Western Balkans and the European Neighbourhood and EUR 532 million in other parts of the world, including in EU Overseas Countries and Territories (OCTs).

New commitments showed the connection of newly approved operations with the Global Gateway Investment Agenda (e.g., Benin for the energy sector, Bolivia for climate change, Cambodia for TVET, and Fiji for climate change to name a few). As well as the Global Gateway, the EU also implemented operations in fields such as migration and social protection.

The design and implementation of budget support continued to build on a sound internal risk management framework, which informs the Commission’s policy dialogue and risk mitigation in partner countries. This framework is used for all developing/emerging countries engaged in a cooperation with the EU. The conclusions stemming from the analysis apply to all actions, not to budget support operations only. This framework thereby supports the rollout of Global Gateway, notably by assessing the enabling factors for the success of flagship projects.

5.2.2.    Blending 

To achieve a greater scale of investments supporting the achievement of the SDGs in an increasingly complex world, development finance needs a combination of funding sources. To increase the impact of Official Development Assistance, public and private funds must be leveraged as efficiently as possible. The EU has expanded its financial instruments and policy tools for investments outside the EU to deliver on its ambitious commitments to sustainable development, enlargement, and neighbourhood policies.

Through blending, the EU uses limited amounts of public grants to mobilise financing from partner financial institutions and the private sector for projects promoting sustainable growth, poverty reduction, and development. The strategic use of a limited grant element can support projects with low financial return but with a high economic and societal return, making them economically viable and enhancing implementation quality.

The EU Blending Framework is comprised of four regional blending facilities( 99 ) that cover all regions of EU external cooperation: the Africa Investment Platform (AIP), Asia Pacific Investment Facility (APIF), Latin America and Caribbean Investment Facility (LACIF), and Neighbourhood Investment Platform (NIP). These facilities comprise the blending instruments under the European Fund for Sustainable Development Plus (EFSD+), operating from 2021-2027, along with pre-existing facilities gradually using up their remaining funds( 100 ).

From the creation of the first blending facilities in 2007, EUR 10 billion of EU grants are estimated to have leveraged over EUR 88 billion of loans by financial institutions and regional development banks for a total investment volume of more than EUR 154 billion.

In 2023, the Blending Board issued a positive opinion for EUR 799 million of EU contributions, up from EUR 580 million in 2022, covering all eligible NDICI-Global Europe regions, key Global Gateway sectorial priorities and supporting Economic and Investment Plans in the Neighbourhood and Enlargement countries. These EU contributions are estimated to have leveraged over EUR 9 billion of financing by financial institutions and regional development banks for a total investment volume of more than EUR 12 billion.

The amounts approved in 2023 are presented in Tables 15 and 16 below.

Table 15: EU Blending contributions approved in 2023 by facility

Table 16: EU Blending contributions approved in 2023 by sector

The EFSD+ was built on the successes of the European Fund for Sustainable Development (EFSD), which in the period 2017-2021 approved guarantees and blending investments in almost 250 projects in Sub-Saharan Africa and the EU Neighbourhood for an EU contribution exceeding EUR 5.7 billion. Expanding the geographic scope compared to EFSD, EFSD+ implements these modalities across all NDICI-Global Europe regions at a larger scale. By merging various external financing instruments under the EU budget, EFSD+ strategically promotes public and private investment worldwide in support of sustainable development.

5.2.3.    EFSD+, EU budget Guarantees 

The European Fund for Sustainable Development Plus (EFSD+) and its predecessor the EFSD aim to bridge the gap between available Official Development Assistance and the substantial amount of financing required to create jobs, mitigate and adapt to climate change, improve connectivity and invest in social infrastructure in order to meet the UNs’ SDGs by 2030. The EFSD+ and the EFSD are powerful de-risking tools constituting the most extensive public blending and guarantee programmes in support of private sector investment for development. The EFSD+ is the financial arm of the NDICI-Global Europe Regulation and one of the key tools to deliver on Global Gateway. It also supports the implementation of the Economic and Investment Plans (EIPs) agreed with Neighbourhood and Enlargement countries.

Under the EFSD, only the European Neighbourhood and the Sub-Saharan Africa regions were eligible for support under the budgetary guarantee component. Under the EFSD+, budgetary guarantees are now applicable to all the regions covered by the IPA III and NDICI-Global Europe instruments, just like the blending platforms. Under these instruments, not only the geographic reach is targeted; but also, the final beneficiaries of the loans extended by the partner financial institutions can be specified in the agreements, for example targeting youth, women, migrants, and more.

Following consultations with the respective EFSD+ regional operational boards, the Commission adopted in September 2023 an implementing decision approving the allocation of EUR 8.45 billion of EFSD+ guarantee cover for 55 investment programmes. Four of these agreements were signed in 2023: EIB/BMGF Accelerating Human Development (total of EUR 1.5 billion contributions), Finnfund Africa Connected (up to EUR 100 million guarantee cover), IFC Better Futures Programme – Eastern Neighbourhood (EUR 90 million guarantee cover), and EBRD Resilience top-up and broadening to Türkiye (EUR 60 million guarantee cover).

Adding to this list, a total of six programmes carried over from the EFSD were signed under the EFSD+ since 2022, including the KfW African Local Currency Bond programme (up to EUR 100 million guarantee cover) signed in 2023.

In February 2023, the European Investment Bank (EIB) and the European Commission signed agreements for a total volume of EUR 4 billion under what is known as ‘Window 4’, which will mobilise up to EUR 3.5 billion in lending and a EUR 500 million Trust Fund contribution to support businesses in African, Caribbean and Pacific countries until 2027. This complements the EUR 26.7 billion guarantee signed in 2022 (under ‘Window 1’, dedicated to sovereign lending), marking an important step in rolling out the EU's Global Gateway strategy and supporting the implementation of the EIPs. This will enable the EIB to enhance not only public but also private investments in key areas like digitalisation, climate and energy, transport and health in partner countries.

Most of the EFSD and EFSD+ guarantee agreements( 102 ) are accompanied by technical assistance to facilitate and strengthen the roll-out of the guaranteed operations. In 2023, 19 contracts for EFSD and EFSD+ guarantee related technical assistance were signed with 13 different partners for a total of EUR 313.9 million.

5.2.4.    Technical Assistance

Technical assistance (TA) refers to the personnel involved in the implementation and the management of technical cooperation services. Technical cooperation (TC) is associated with actions aimed at strengthening individual and organisational capacity by providing expertise (short- and long-term TA personnel, institutional twinning arrangements, and mobilisation of diaspora, etc.), training and related learning opportunities (peer exchange, tertiary education, etc.), and equipment.

In the framework adopted under NDICI-Global Europe, the EU has undertaken significant efforts to use more Member States’ public sector expertise to provide technical assistance to partner countries, including by expanding use of Twinning and TAIEX tools to countries beyond EU’s immediate neighbourhood. Public sector expertise has been recognised as a form of international technical cooperation that mobilises expertise from all EU Member States’ public institutions. It promotes reform and sustainable and inclusive development policies through peer-to-peer knowledge exchange and institutional partnerships with partner countries to support the implementation of the Agenda 2030 for sustainable development and the Paris Agreement.

Support provided by EU Member States creates mutual trust between the EU and partner countries’ public servants and institutions, helps promote European values and interests as well as European standards and the policy approaches that are necessary for enhancing strategic partnerships. More importantly, it has proved to be a flexible, efficient and cost-effective way to build capacities. It is also well-suited for the ‘Team Europe’ approach and initiatives, as all interested Member States (including smaller ones and those without a presence in partner countries) could be involved in the planning and implementation of interventions in EU external action activities.

In addition, several technical assistance facilities (i.e., service contracts) managed directly by the European Commission are providing short-term technical assistance and learning in order to support partners, EU Delegations and European Commission’s Headquarters services in designing and implementing external action interventions.

5.2.5.    Twinning and TAIEX

The European Commission’s institution building instruments TAIEX (Technical Assistance and Information Exchange; short-term assistance) and Twinning (medium- to long-term assistance) strategically supported the implementation of the Commissions’ priorities in Partner Countries and EU Member States. The assistance was provided in a ‘Team Europe’ approach sharing EU best practice through peer-to-peer exchanges supporting reforms in partner countries and promoting EU political priorities notably under the Global Gateway strategy and the SDGs.

In 2023, TAIEX organised 954 events, out of which a total of 43 events were multi-country events. The main areas of intervention were: 33 % Rule of law, migration and security, 13 % Farm to fork, 29 % Stronger society and inclusive economy, and 24 % Green and digital transitions, connectivity. 60 % of the events were implemented in Western Balkans, Eastern Partnership and Neighbourhood South partner countries. The remaining 40 % were organised in the EU and in partner countries around the world in Africa, Latin America and Asia.

2023 also marked the 25th anniversary of the Twinning instrument and since its inception almost 3000 projects have been implemented. During the year, 95 Twinning projects were ongoing, involving 23 Member States either as a lead or as a junior partner, with France, Italy, and Austria being the most involved as lead Member States. Furthermore 34 new projects are currently under preparation.

5.3.    Improving ways of working 

5.3.1.    Simplification of procedures 

Legislative Framework

Under the current multiannual financial framework 2021-2027, the Neighbourhood, Development and International Cooperation Instrument-Global Europe (NDICI-Global Europe)( 103 ) covers all external actions except those with a distinct legal basis under the Treaties. As a result, alongside NDICI-Global Europe, the Decision on the Overseas Association, including Greenland (DOAG)( 104 ), the European Instrument for International Nuclear Safety Cooperation (INSC)( 105 ) and the Instrument for Pre-Accession assistance (IPA III) ( 106 ) constitute the basic acts or financing instruments for external action under the multiannual financial framework 2021-2027.

The aim of merging the external action financing instruments which existed under the multiannual financial framework 2014-2020, into one single instrument is to achieve simplification in an area that was characterised by a multitude of diverging and sometimes conflicting provisions. While DOAG and IPA III remain distinct, those basic acts build upon cross-references to the NDICI-Global Europe, thereby harmonising the implementation provisions. Moreover, the budgeting of the European Development Fund (EDF), by integrating into NDICI-Global Europe the cooperation previously funded by the extra-budgetary EDF, results in one single set of rules applicable to all external actions. In line with this, the Samoa Agreement, i.e. the new Partnership Agreement with the Organisation of African, Caribbean and Pacific States (OACPS)( 107 ), no longer includes a Financial Protocol, nor technical provisions laying down specific implementation and management procedures for cooperation with OACPS.

The external action instruments were complemented in 2024 with a Regulation establishing the Ukraine Facility( 108 ) and a Regulation on establishing the Reform and Growth Facility for the Western Balkans( 109 ) adopted on 29 February 2024 and 14 May 2024 respectively. Inspired from the Recovery and Resilience Facility( 110 ), these new instruments are characterised by their source of funding (mix of loans and of non-repayable support), their focus on and incentivisation of reforms by Partner countries, the disbursements triggered by the achievement of qualitative and quantitative steps, and the channelling of funds through national treasuries and infrastructure investment platforms. While innovative in approach, both facilities set rules that are consistent with the existing instruments under the current MFF.

Direct Management

Digitalisation is directly linked with simplification, and the Commission has engaged in the adoption of a wide corporate suite consisting of MyWorkplace, eProcurement and OPSYS( 111 ), as well as the Funding & Tenders portal for external access. It is however desirable to adapt procedures and models to the specific needs of external action, and this necessary adaptation allows the Commission to continue its simplification efforts.

Regarding grant agreements, the Commission has been working towards setting up a RELEX family( 112 ) Model Grant Agreement (MGA)( 113 ) in view of onboarding eGrants. However, because of the specificities related to grants in the EU’s external action, specific adjustments to the MGA and developments in eGrants are needed. Due to this, it is likely that onboarding will not happen before 2025.

Regarding procurement, the main priority is to complete the onboarding, expected to take place in 2024, of eProcurement, which will become the contract management tool enabling paperless contract management and replace the current legacy system CRIS. Such onboarding will also be reflected in the upcoming changes to the Practical Guide (PRAG).

Indirect Management

Two Financial Framework Partnership Agreements (FFPA) have been signed in 2023. One with the Asian Development Bank (ADB), and the other one with the African Development Bank (AfDB) together with the African Development Fund (ADF). To accelerate negotiations and reduce the risk of errors, ready-to-use templates of the contribution agreement, including for financial instruments, already including the supplementary and derogatory clauses agreed upon in the corresponding FFPAs have been prepared. In addition, an amendment to the FFPA signed with the Organisation for Economic Co-operation and Development (OECD) has been concluded, along with new templates with a view to introducing OECD’s new cost recovery regime.

In parallel, the Commission finalised over the summer of 2023 negotiations on the new general conditions of the Western Balkan Investment Facility (WBIF)( 114 ), which entered into force as from September 2023, and concluded the first side letters integrating bilateral implementation arrangements with each lead financial institution.

A new IT tool for the electronic signature and management of contributions agreements was progressively introduced with the aim to simplify and alleviate the related contractual processes. In the same vein, several simplifications were identified and, for some, already implemented in 2023, notably affecting the management of blending operations (including financial instruments), the pillar assessment process and the signature of financing agreements with partner countries.

5.4.    Communication & transparency 

5.4.1.    Communication 

The European Commission continued the implementation of the new approach to strategic communication and public diplomacy for activities funded under NDICI-Global Europe at country, regional and global level. The new approach has moved away from fragmented, partner-implemented activities concentrating on each project and programme towards country specific strategic communication explaining Europe’s political offer to partner countries. It aims to ensure awareness, understanding and perception of the EU and its Member States, in both EU and partner countries, and is commensurate with the scale, scope and ambition of our sustained engagement. Strategic communication activities are data driven, using local languages, and designed to focus not only on what the EU does, but why, including by emphasising shared values, interests and impact, and promoting the EU’s leadership role on key priorities. To implement the new approach, a communication strategy on Global Gateway in a ‘Team Europe’ approach has been adopted. Global Gateway was also promoted through the Economic and Investment Plans of the Western Balkans and the EU Neighbourhood.

Ukraine

The EU NEIGHBOURS EAST regional communication programme has been actively supporting Ukraine and its citizens since the beginning of Russia's invasion in 2022. The programme focuses on three main objectives: highlighting the EU's response, providing practical resources to Ukrainians, and showcasing solidarity. A dedicated webpage, #StandWithUkraine, was developed, offering information, stories, and videos in English, Ukrainian, and Russian. The programme has also implemented the #FacesOfUkraine campaign and extensively covered the EU enlargement process with relevant announcements and content for Ukraine.

Social media channels of the EU NEIGHBOURS EAST programme have garnered significant attention from Ukrainian audiences, with around 25 000 users reached daily. Paid advertising campaigns targeting Ukrainian users led to an increase in visits to EU-related websites. Furthermore, the programme promoted a video series countering disinformation about the war in Ukraine, reaching 6.9 million people and resulting in 332 000 views. The efforts of the programme emphasise the EU's commitment to supporting Ukraine and its people during this challenging time.

The Young European Ambassadors (YEAs) played a significant role in the communication efforts in Ukraine. They organised numerous civic engagement activities, reaching out to thousands of people, both in person and online. Their activities primarily focused on presenting EU-funded opportunities for youth, conducting interactive lectures at schools and universities about the EU's partnership and support to Ukraine, and organising workshops and lectures for participants of EU-funded projects.

Global Gateway

The deployment of the Global Gateway strategy was given prominence throughout the year, in particular through the successful and first ever Global Gateway Forum hosted by the President of the European Commission Ursula von Der Leyen, held in Brussels on 25 to 26 October 2023. Over 20 Heads of States and Governments and 70 ministers, as well as leading high-level representatives from the private sector, civil society organisations, academia and financing institutions attended. The Forum brought together a total of around 850 participants. Over EUR 3 billion of investment was announced or signed, linked to the implementation of Global Gateway flagship projects.

Global Gateway communication centred around presenting the Global Gateway Investment Agenda to the EU-CELAC Summit in July. This was backed up by a dedicated campaign in key Latin America countries. Other key moments in 2023 were the fifth United Nations Conference on the Least Developed Countries, the UN General Assembly High Level Week, the COP28 Summit, the G20 Development Ministers meeting and the G7 Hiroshima Summit.

Communication activities concentrated on renewable hydrogen in Namibia, EU-LAC Digital Alliance I (BELLA - Panama, Brazil, Columbia, Uruguay), EU-LAC Digital Alliance II (Copernicus - Brazil, Chile, Argentina, Mexico), Sebzor hydropower plant in Tajikistan, and Health and the Team Europe Initiative on Manufacturing and Access to Vaccines, Medicines and Health Technologies in Rwanda. The campaigns delivered excellent results across the platforms, driving strong awareness amongst focus countries with outstanding video consumption, ensuring a wide penetration of the EU’s key messages.

In addition, key social media campaigns in 2023 included the Global Gateway Forum, COP28, EU – Latin America and Caribbean Forum, Youth Sounding Board launch, United Nations General Assembly, Human Rights Campaign, and the Lorenzo Natali Prize. The social media campaign around the Global Gateway Forum, for instance, made a significant impact on a global scale with online discussions reaching a global audience of 27.4 million users worldwide.

Campaigns, social media and public diplomacy activities

In 2023, major campaigns and public diplomacy activities included: ‘Women in Science’, ‘Made Of Us’, and Eyes on Earth. The Pride Month in June was marked with various activities, as well as the Orange the World campaign with 16 days of activism addressing gender-based violence, while the largest campaign addressing climate change during the year was the #ForOurPlanet campaign. For all global topics, the network of young influencers under the campaign #OurVoiceOurFuture across the globe partnered up for a better communication impact, with an estimated of 97.8 million reach last year only (compared to 57.6 million in 2022). This campaign was mentioned in 100 countries, used in over 100 languages and showcased a successful community-led campaign.

The EU regional communication programme for the Western Balkans (WeBalkans) continued with several components, including development of the web portal WeBalkans.eu and production of varied content for the WeBalkans social media. The programme organised a highly successful third awareness-raising ‘Made of Us’ campaign, based on collaborations with video bloggers from the EU and the Western Balkans. The campaign reached over 10 million people in under three months.

The EU Neighbours East and South regional communication programmes also continued with many different components. These included thematic communication campaigns, expanding a network of media and non-media partners, a flagship network of Young European Ambassadors (1 162 for the East, as well as 194 EU Jeel Connectors and 33 EU Goodwill Ambassadors for the South), annual opinion polls, improving the EUDIGITOOL for EU projects in the Eastern Partnership and launching it for the South, and maintaining a comprehensive database of EU-funded projects with external country websites.

In the Middle East, the EU Regional Media Officer conveyed the EU’s positions to Arab-speaking audiences, consolidating the EU’s presence in regional media and social media platforms (‘EUinArabic’ on Twitter and ‘Eubilaraby’ on Instagram).

Events

In addition to the Global Gateway Forum, another important success was the EU’s presence as guest of honour at the Guadalajara Bookfair in Mexico (FIL) with an EU Pavilion and a programme that attracted nearly 900 000 visitors on-site and many online. Another highlight was the EU Open Day organised with over 5 000 visitors coming in one day. Throughout the year various on-line and offline events and activities also marked the 75th Anniversary of the Universal Declaration of Human Rights.

The 31th edition of the Lorenzo Natali Prize for outstanding journalism received more than 700 eligible submissions from round the globe. This year, the award ceremony also included the signature of a Financial Framework Partnership Agreement for Protecting Independent Media with three leading consortia, for a duration of four years.

Nine Kapuscinski Development Lectures were also organised by the European Commission, bringing together a total of 3 500 participants. The list of high-level speakers from around the world included names of renowned thinkers, such as Ban Ki-Moon, Donald Kaberuka, and Mary Kaldor.

Countering information manipulation and disinformation

In 2023, the EU continued to develop tools and initiatives to counter foreign information manipulation and interference (FIMI), notably the FIMI Toolbox that was adopted by the European Council in December 2023. This includes continued efforts to impose political, economic and reputational costs on the perpetrators of FIMI, including those who undermine elections and open media environments in the EU and its neighbourhood. Action to better understand FIMI threats included publishing the first ever EEAS Threat Report on FIMI, setting out a novel methodology to systematically identify, analyse and share information on FIMI incidents to enable informed and evidence-based policy responses among EU and partners to address the threat. On the response side, the EU continued efforts to expose the extent of Russia’s, as well as other actors’ such as China’s, FIMI efforts by strengthening EU communication, including the ‘EUvsDisinfo’ awareness-raising campaign that reached around 20 million people in 2023. The EU directly supported Ukraine’s strategic communication efforts and worked closely with international and likeminded partners, in particular the G7 and NATO, to push back on war propaganda and to build partnerships to improve society’s awareness of and resistance to information manipulation and to strengthen proactive communications.

In the Western Balkans, the EU developed a series of awareness raising, resilience and capacity building activities, continuing its strategic communication efforts to prevent and narrow the space for FIMI targeting the EU and its policies, whilst simultaneously positioning the EU and promoting the understanding of its positions among audiences, with a strong focus on Russia’s full-scale invasion of Ukraine. Among these, the EU supported the launch of the region’s Media Ownership Monitor, a global research project aiming at understanding the control of media outlets through contextualisation and rigorous analysis. The EU also supported the publication, launch and dissemination of the first-ever disinformation studies in Albania and Kosovo.

The activities of the network of nearly 180 Young European Ambassadors (YEAs) were further strengthened. YEAs were active in promoting the 2023 Enlargement package and the launch of the new master’s programme and campus in Tirana in cooperation with the College of Europe. They continued their active role in training other youth on media literacy via dedicated workshops, thus contributing to addressing disinformation in the region.

Projects were carried out by EU Delegations to increase media literacy and raise awareness on FIMI, including with younger audiences, building societal resilience against this threat.

In 2023, the EEAS set up a Sub-Saharan Stratcom Task Force as called for by the Foreign Affairs Council in January 2023 with the specific mandate to strengthen the EU strategic communications and tackle rapidly growing foreign information manipulation in the region.

5.4.2.    Transparency 

The European Commission has continued to ensure transparency and accountability of its development assistance through the publication of timely, comprehensive, and forward-looking data in line with the International Aid Transparency Initiative (IATI)( 115 ) standard, OECD-DAC’s Creditor Reporting System( 116 ), the DAC Advance Questionnaire( 117 ) and the joint DAC-XCRED report on untied ODA( 118 ) contract awards as well as Total Official Support for Sustainable Development (TOSSD)( 119 ).

The European Commission remains firmly committed to transparency, a development effectiveness principle and a key principle of the Global Gateway strategy. The European Commission remains an active member of IATI.

Furthermore, the European Commission continues to invest in publishing higher quality data and information on development cooperation and developing innovative tools in support of informed decision-making. In 2023, an optimisation of the EU Aid Explorer( 120 ) took place and progress was notably made on a revamp of it, called the Team Europe Explorer (to be available in 2024), which will allow users to freely explore EU and Member States’ spending on TOSSD besides the already existing data on official development assistance.

5.4.3.    Learning 

Within the Commission, the international partnerships learning development sector organises a wide range of learning events to train European Commission services (Delegations and Headquarters) on political priorities and key thematic development topics. The learning offer is also often open to a wider community, such as to practitioners from Member States or, in the case of the e-learning platform EU International Partnerships Academy( 121 ), to the public.

Learning activities aim at enabling European Commission staff to acquire, develop, retain, share and apply the knowledge and skills necessary for achieving the Commission’s mandate and goals. In 2023, a full revision of the training catalogue was carried out, to align the catalogue with staff needs and strategic priorities, resulting in over 200 new training courses for staff.

In 2023, 151 different training events on EU Learn (for 4 168 participants) were organised, for the most part in different online formats such as webinars, virtual classes and e-learning courses.

In addition to the use of the internal EU Learn platform, the EU International Partnerships Academy, launched in 2018, is a dedicated tool to make online learning on development and on international partnerships accessible to everyone, everywhere and on every mobile device. In 2023, the Academy welcomed 4 000 new users reaching more than 24 000 enrolled learners coming from more than 198 countries. The platform currently offers more than 420 different learning resources and has reached more than 1.1 million visits (270 000 in 2023).

Compared to 2022, the total number of training materials available on the website has increased by 15 %. Among some new courses available are eLearnings on cybersecurity, European Fund for Sustainable Development Plus, disability, the Inequality Marker, and a series of webinars on greening EU cooperation.

The average users’ satisfaction rate of courses was 81 %, based on feedback received following course completion.

The Academy also collaborates with other International Organisations on the production of learning resources, particularly in the context of the Learn4Dev donor competence network. This ensures joint understanding and ownership of concepts, producing efficiency gains and aid effectiveness. Learn4Dev is an effective space to co-create learning resources for cooperation and development practitioners.

6. Results annexes

6.1. Introduction

Since 2015, results reporting has been an annual exercise, collecting data from all external action interventions funded by the European Commission. This report presents the first results collected under the 2021–2027 Multi-Annual Financial Framework (MFF). As expected, the initial results are modest, reflecting the significant lead time between the adoption of legal bases and budgets, the programming and design of interventions, project initiation, and the generation of measurable outcomes.

To maintain the integrity of the funding-results relationship, results are reported separately for each MFF.

The relative contributions of each MFF to corporate reporting are illustrated in figure 4, which aggregates results for a representative indicator common to both the European Union Results Framework (EURF) and the Global Europe Results Framework (GERF). Results from 2014–2020 MFF-funded interventions are shown in orange, while those from 2021–2027 MFF-funded interventions appear in green. The graph underscores that interventions funded under a 7-year MFF typically generate results over a span of at least 14 years. The results reported this year (see arrow and corresponding bar outlined in black) represent only the very initial results under this MFF.

Figure 4: Illustrative timing of the results generated by successive MFFs and consequent durations of associated results frameworks 122

6.2. Methodological basis for selected results reported against the Global Europe Results Framework, the EU Results Framework, the IPA III Results Framework and the IPA Performance Framework

The 2021-2027 Multi-Annual Financial Framework (MFF) entered into force on 14 June 2021. Results monitoring and reporting for Neighbourhood, Development, and International Cooperation Instrument–Global Europe (NDICI–Global Europe) are guided by the Global Europe Results Framework( 123 ) (GERF), launched in 2022. The implementation for the Instrument for Pre-accession Assistance( 124 ) (IPA III) is monitored via the IPA III Results Framework, also launched in 2022.

The financial execution process begins with the adoption of a budget, followed by programming through Multiannual Indicative Programmes (MIPs) for countries, regions, and thematic areas. MIPs are then broken down into Annual Action Plans, which are detailed in Action Documents. These Action Documents are annexed to the Commission Financing Decisions and form the basis for contracting interventions, enabling implementation to commence.

Results reporting for interventions occurs annually. The first progress report is typically prepared around one year after inception, and has to undergo subsequent review, potential revisions, and final approval. The reporting process involves multiple steps: data must be encoded into the dedicated internal IT system (OPSYS) by the Implementing Partner, verified by the Operational Manager of the European Commission, and subjected to quality control. This multi-layered process often extends over six months. Furthermore, many results, particularly outcomes, only materialise at the end of the intervention lifecycle.

This results reporting process has been further prolonged by the introduction of the OPSYS IT tool, alongside efforts to improve the quality control process. The IT platform, used for contract management and results reporting, required onboarding for more than 4 000 Implementing Partners and more than 2 000 Operational Managers in the Commission. This effort was further complicated by software bugs and connectivity challenges, particularly for users with limited internet access. As a result, only about half of the interventions reported values for more than 50 % of the indicators in their logframes. The missing results will be addressed in next year’s reporting.

The figure 5 below illustrates the gradual start to results reporting while projecting significant growth in reported results next year. It depicts the number of interventions under implementation since the start of the MFF. By 1 July 2023, there were 1 318 interventions under implementation (red lines). However, only 61 of these interventions had been active for more than 18 months (green lines), which is often a prerequisite for meaningful results reporting.

Figure 5: Number of NDICI interventions under implementation

Results achieved through instruments financed under the 2014–2020 MFF will continue to materialise for several years. These results are reported using the EU Results Framework (EURF) for non-Neighbourhood and Neighbourhood regions and the Instrument for Pre-accession Performance Framework (IPA PF) for the Enlargement region, both introduced in 2018 for this purpose.

6.2.1. Structure of the corporate results framework

EURF and GERF

Both corporate results frameworks are structured around three levels of results. At the core of the framework, a set of respectively 31 (EURF) and 39 (GERF) indicators at output and outcome level (Level 2) measure results achieved by EU-funded projects and programmes.

Level 1 corresponds to development progress in partner countries; that is, the medium- and long-term development impact achieved in partnership and collaboration with others. Impacts reflect the operational context in which EU external assistance is provided.

Data source Level 1: Internationally available indicators, as much as possible from the SDG database.

Level 2 focuses on development outcomes and outputs that EU-funded interventions contribute to in collaboration with partner governments and other funding providers. In line with the principles of aid effectiveness and effective development cooperation that emphasise partnerships and country ownership, results at this level are presented on a contribution basis. Rather than results being based on the share of funding provided by the EU, they represent the combined efforts of a variety of partners, including the EU, Member States, partner country governments and public institutions, local communities, international finance agencies, CSOs, non-profit entities and private companies. Data collection is guided by specific methodological notes( 125 ).

Data source Level 2: Results data are drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs).

Level 3 focuses on the mainstreaming of policy priorities, as measured by budgetary commitments directed at specific cross-cutting issues (e.g., human development, gender, or nutrition), and focuses on organisational financial data. Some of the indicators have organisational targets.

Data source level 3: Internal financial monitoring systems.

IPA PF and IPA III RF

Both the IPA PF and the IPA III RF are also structured around three levels of results. While IPA PF is made of a set of 36 indicators at output and outcome level (Level 2) that measure results achieved by EU-funded projects and programmes, the IPA III RF includes 155 levels 1 and 2 indicators.

Level 1 corresponds to development progress in IPA/IPA II/IPA III beneficiaries; that is, the medium- and long-term development impact achieved in partnership and collaboration with others. Impacts reflect the operational context in which EU external assistance is provided.

Level 2 focuses on development outcomes and outputs to which EU-funded interventions contribute to in collaboration with partner governments and other funding providers. In line with the principles of aid effectiveness and effective development cooperation that emphasise partnerships and country ownership, results at this level are presented on a contribution basis. Rather than results being based on the share of funding provided by the EU, they represent the combined efforts of a variety of partners, including the EU, Member States, partner country governments and public institutions, local communities, international finance agencies, CSOs, non-profit entities and private companies. Data collection is guided by specific methodological notes( 126 ).

Data source Level 2: Results data are drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs).

Level 3 focuses on the mainstreaming of policy priorities, as measured by budgetary commitments directed at specific cross-cutting issues (e.g., human development, gender), and focuses on organisational financial data. Some of the indicators have organisational targets.

Data source level 3: Internal financial monitoring systems.

6.3. Level 2 indicators: Reporting on partner country results supported by the EU (EU RF, IPA PF and IPA III)

EURF

Selection criteria: Results were collected from a set of ongoing and completed interventions( 127 ) that started between 1 January 2014 and 31 January 2022, with an EU contribution of EUR 750 000 or more. This year over 4 000 projects and programmes reported latest results information, out of which 1 900 projects and programmes contributed to at least one of the corporate indicators. The sample of ongoing interventions continues to expand over time.

As in previous years, the results reported cannot be interpreted as providing a full picture of the interventions financed by the EU in the countries concerned.

Methodology notes for EU Results Framework indicators: Methodology notes are available for each EU Results Framework indicator to ensure that data from the various reporting sources could be aggregated consistently. These notes provide definitions and data sources clearly explaining what type of interventions should be included when reporting against an indicator. These notes, for both the original and the revised results frameworks, can be found at http://capacity4dev.ec.europa.eu/eu-rfi . 

Data: Results data is drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs). These organisations use data collected from a variety of sources, such as the management information system of partner countries, the individual project monitoring frameworks of implementation partners and representative surveys.

Reporting: The 2018-2022 figure reports a cumulative number, including results reported since the 2018 results reporting exercise. The numbers are cumulated with careful consideration of potential double counting across projects and programmes and across years. The approach taken is to err on the side of safety, so any potentially double counted results are excluded from the results reported.

A common feature of all Level 2 indicators is that the results reported have been calculated using a contribution-based approach. This means that where an intervention has been financed by the EU jointly with other funders – such as partner country governments or other donors – the overall results of the collective effort are reported, rather than those linked to the share of funding provided by the EU specifically.

EURF indicator 2.30 ‘Number of countries supported by the EU to strengthen revenue mobilisation, public financial management and/or budget transparency’ is an exception in terms of scope and data collection. In addition to the interventions included in the exercise, this indicator draws on all countries with an ongoing EU budget support contract.

EURF indicators 2.9 ‘Number of individuals with access to electricity with EU support through a) new access, b) improved access’, 2.10 ‘Renewable energy generation capacity installed with EU support (MW)’ and 2.21 ‘Greenhouse gas emissions avoided with EU support (tonnes CO2eq)’( 128 ) also include reporting by the EU–Africa Infrastructure Trust Fund (EU-AITF). EU RF 2.9 reports inferred figures, which were calculated using the KfW model for estimating access using electricity generation capacity. EU RF 2.10 and EU RF 2.21 report expected results.

EURF indicators 2.1 ‘Number of people directly benefiting from EU supported interventions that aim to reduce social and economic inequality’ and 2.17 ‘Number of migrants, refugees, and internally displaced people or individuals from host communities protected or assisted with EU support’ can be used along with more specific sectoral indicators. Thus, beneficiaries counted under these indicators might also be counted under more specific indicators and therefore results should not be aggregated with these indicators because of potential double counting risks.

Given its use in the Gender Action Plan III (GAP III), the new GERF indicator 2.37 ‘Number of people benefitting from EU-funded interventions to counter sexual and gender-based violence’ is already reported upon, numbered as EURF 2.31.

Results by sex of beneficiaries: The SWD(2018) document( 129 ) mentions that, where possible, results are to be disaggregated by sex. Where this disaggregation has not been provided, it is either because this was not relevant for the indicator in question (e.g., EURF 2.4 ‘Agricultural and pastoral ecosystems where sustainable management practices have been introduced with EU support’) or because the data were not available. Due to data availability at intervention level, the sum of sex-disaggregated results may not equal the total results figures.

Results by country: When presenting results broken down by country, figures are reported according to the country where the result was achieved. While efforts have been made to capture this detailed level of reporting as far as possible, data were not always available at this level; for example, in the case of multi-country regional interventions where country-level results were not reported. Where the EU has funded interventions in overseas countries and territories, results achieved are reported at this level. This approach is also taken where EURF indicators measure the number of countries supported in a specific sector.

Quality: The data are subjected to an extensive quality assurance process to ensure that:

·The data sources are reliable;

·The link between the indicators from the monitoring system of the intervention and the indicators from the EURF is robust; and

·The individuals who have benefited from the same intervention over different years, and/or from different interventions ending and/or ongoing in the same year, are only counted once.

However, given the great variety of data sources used, the data quality may vary.

GERF

Selection criteria: Results were collected from a set of ongoing and completed interventions( 130 ) that started between 1 January 2021 and 30 June 2023. This year over 1 000 projects and programmes reported latest results information, out of which over 134 projects and programmes contributed to at least one of the corporate indicators. The sample of ongoing interventions continues to expand over time.

As this is the first year, the results reported cannot be interpreted as providing a full picture of the interventions financed by the EU in the countries concerned.

Methodology notes for GERF indicators: Methodology notes are available for each GE Results Framework indicator to ensure that data from the various reporting sources could be aggregated consistently. These notes provide definitions and data sources clearly explaining what type of interventions should be included when reporting against an indicator. These notes can be found at http://capacity4dev.ec.europa.eu/eu-rfi .

Data: Results data is drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs). These organisations use data collected from a variety of sources, such as the management information system of partner countries, the individual project monitoring frameworks of implementation partners, and representative surveys.

Reporting: The numbers are cumulated with careful consideration of potential double counting across projects and programmes and across years. The approach taken is to err on the side of safety, so any potentially double counted results are excluded from the results reported.

A common feature of all Level 2 indicators is that the results reported have been calculated using a contribution-based approach. This means that where an intervention has been financed by the EU jointly with other funders – such as partner country governments or other donors – the overall results of the collective effort are reported, rather than those linked to the share of funding provided by the EU specifically.

GERF indicator 2.19 ‘Number of countries supported by the EU to strengthen revenue mobilisation, public financial management and/or budget transparency’ is an exception in terms of scope and data collection. In addition to the interventions included in the exercise, this indicator draws on all countries with an ongoing EU budget support contract.

GERF indicators 2.3 ‘Number of individuals with access to electricity with EU support through a) new access, b) improved access’, 2.4 ‘Renewable energy generation capacity installed with EU support (MW)’ and 2.7 ‘Greenhouse gas emissions avoided with EU support (tonnes CO2eq)’( 131 ) are no longer reporting expected results as was the case for the previous MFF and are now reporting values actually achieved.

GERF indicators 2.20 ‘Number of migrants, refugees, and internally displaced people or individuals from host communities protected or assisted with EU support’. 2.32 ‘Number of food insecure people receiving EU assistance’, 2.39 ‘Number of people directly benefiting from EU supported interventions that aim to reduce social and economic inequality’ can be used along with more specific sectoral indicators. Thus, beneficiaries counted under these indicators might also be counted under more specific indicators and therefore results should not be aggregated with these indicators because of potential double counting risks.

Results by sex of beneficiaries: The SWD(2018) document( 132 ) mentions that, where possible, results are to be disaggregated by sex. Where this disaggregation has not been provided, it is either because this was not relevant for the indicator in question (e.g., GERF 2.2 ‘Agricultural and pastoral ecosystems where sustainable management practices have been introduced with EU support’) or because the data were not available. Due to data availability at intervention level, the sum of sex-disaggregated results may not equal the total results figures.

Results by country: When presenting results broken down by country, figures are reported according to the country where the result was achieved. While efforts have been made to capture this detailed level of reporting as far as possible, data were not always available at this level; for example, in the case of multi-country regional interventions where country-level results were not reported. Where the EU has funded interventions in overseas countries and territories, results achieved are reported at this level. This approach is also taken where GE RF indicators measure the number of countries supported in a specific sector.

Quality: The data are subjected to an extensive quality assurance process to ensure that:

·The data sources are reliable;

·The link between the indicators from the monitoring system of the intervention and the indicators from the GERF is robust; and

·The individuals who have benefited from the same intervention over different years, and/or from different interventions ending and/or ongoing in the same year, are only counted once.

However, given the great variety of data sources used, the data quality may vary.

Joint reporting with EU Trust Fund for Africa interventions: As part of the 2018 revision of the results framework, efforts have been made to harmonise indicator methodologies to enable joint reporting with other monitoring systems. Four indicators can be reported together with results from EU Trust Fund for Africa (EU TF) interventions. Thus, in addition to the figures collected through the EURF, reporting includes figures reported through the EU TF. The EURF indicators that feature data via joint reporting are:

·EURF 2.15 Number of people who have benefited from institution- or workplace based vocational education and training (VET)/skills development interventions supported by the EU (window: Horn of Africa, Sahel and Lake Chad);

·EURF 2.17 Number of migrants, forcibly displaced people or individuals from host communities protected or assisted with EU support (windows: Horn of Africa, Sahel and Lake Chad, North of Africa);

·EURF 2.18a Number of migration management or forced displacement strategies or policies: a) developed/revised (window: North of Africa); and

·EURF 2.29 Number of state institutions and non-state actors supported on security, border management, countering violent extremism, conflict prevention, protection of civilian population and human rights (window: North of Africa).

IPA Performance Framework

Selection criteria: Results were collected from a set of ongoing and completed interventions that started between 1 January 2014 and 31 January 2022, with an EU contribution of EUR 750 000 or more. This year, over 364 projects and programmes reported latest results information, out of which 102 projects and programmes contributed to at least one of the corporate indicators. The sample of ongoing interventions continues to expand over time.

The total EU allocation for the interventions that were able to report against the IPA PF indicators was EUR 1 437.3 million. Of this amount: 29 % is in the competitiveness area (business policy and administration, small and medium-sized enterprises, job creation); 14.7 % was allocated to water and sanitation utilities; road infrastructure and urban development; 14 % was allocated in the area of public administration reform (public sector policy and administrative management, public finance management and decentralisation and support to subnational government areas); 13.9 % was allocated to human rights, equality, and refugee support (health, education, inclusivity); and 12.9 % was allocated to legal and judicial development, and rule of law (security system management and reform, and anticorruption).

As in previous years, the results reported cannot be interpreted as providing a full picture of the interventions financed by the EU in the countries concerned.

Methodology notes for IPA Performance Framework indicators: Methodology notes are available for each IPA Performance Framework indicator to ensure that data from the various reporting sources financed by the Instruments for Pre-Accession I and II could be aggregated consistently. These notes provide definitions and data sources clearly explaining what type of interventions should be included when reporting against an indicator. These notes are available upon request.

Data: Results data is drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs). These organisations use data collected from a variety of sources, such as the management information system of partner countries, the individual project monitoring frameworks of implementation partners and representative surveys.

Reporting: The 2018-2022 figure reports a cumulative number, including results reported since the last results reporting exercise. The numbers are cumulated with careful consideration of potential double counting across projects and programmes and across years. The approach taken is to err on the side of safety, so any potentially double counted results are excluded from the results reported. A common feature of all Level 2 indicators is that the results reported have been calculated using a contribution-based approach. This means that where an intervention has been financed by the EU jointly with other funders – such as partner country governments or other donors – the overall results of the collective effort are reported, rather than those linked to the share of funding provided by the EU specifically.

Results by IPA beneficiary: When presenting results broken down by IPA beneficiary, figures are reported according to the beneficiary where the result was achieved. While efforts have been made to capture this detailed level of reporting as far as possible, data were not always available at this level; for example, in the case of multi-country regional interventions where country-level results were not reported (in this case, results are presented under the label ‘Western Balkans regional results’).

Quality: The data are subjected to an extensive quality assurance process to ensure that:

·The data sources are reliable; and

·The link between the indicators from the monitoring system of the intervention and the indicators from the IPA PF is robust.

·However, given the great variety of data sources used, the data quality may vary.

IPA III Results Framework

Selection criteria: Results were collected from a set of ongoing and completed interventions that started between 1 January 2021 and 30 June 2023. This year over 108 projects and programmes reported latest results information, out of which over 25 projects and programmes contributed to at least one of the corporate indicators. The sample of ongoing interventions continues to expand over time.

As this is the first year, the results reported cannot be interpreted as providing a full picture of the interventions financed by the EU in the countries concerned.

Methodology notes for IPA III Results Framework indicators: were not yet published at the time of the results data collection exercise.

Data: Results data is drawn from the reports of EU implementation partners (i.e., partner countries, international organisations, Member States’ development agencies, international financial institutions and NGOs). These organisations use data collected from a variety of sources, such as the management information system of partner countries, the individual project monitoring frameworks of implementation partners and representative surveys.

Reporting: The 2021-2023 figure reports a cumulative number, including results reported since the last results reporting exercise. The numbers are cumulated with careful consideration of potential double counting across projects and programmes and across years. The approach taken is to err on the side of safety, so any potentially double counted results are excluded from the results reported. A common feature of all Level 2 indicators is that the results reported have been calculated using a contribution-based approach. This means that where an intervention has been financed by the EU jointly with other funders – such as partner country governments or other donors – the overall results of the collective effort are reported, rather than those linked to the share of funding provided by the EU specifically.

Results by IPA beneficiary: When presenting results broken down by IPA beneficiary, figures are reported according to the beneficiary where the result was achieved. While efforts have been made to capture this detailed level of reporting as far as possible, data were not always available at this level; for example, in the case of multi-country regional interventions where country-level results were not reported (in this case, results are presented under the label ‘Western Balkans regional results’).

Quality: The data are subjected to an extensive quality assurance process to ensure that:

·The data sources are reliable; and

·The link between the indicators from the monitoring system of the intervention and the indicators from the IPA III RF is robust.

·However, given the great variety of data sources used, the data quality may vary.

6.4. Level 3: Reporting on policy mainstreaming as measured by budgetary commitments

GERF

Level 3 indicators report on financial flows in 2023 and include all funds from NDICI-Global Europe. Level 3 reporting excludes funds under the previous MFF (2014-2020), i.e., the presentation of payments does not present all payments made in 2023. Given the budgetary cycle, payments were low or zero for NDICI-Global Europe funds.

Some of the Level 3 indicators are related to spending targets, provided in the legal basis to the NDICI-Global Europe (e.g. ODA, climate, social inclusion and human development, migration and forced displacement) and the gender targets. In some cases, the priority is derived from formal EU policy commitments endorsed by the Council (e.g., Gender Action Plan III) or international commitments made by the EU (e.g., nutrition).

All ten Level 3 indicators from the 2018 EURF have been included in the GERF, with a couple of minor adjustments (i.e., two indicators from the 2018 EURF have been merged, and the methodology to calculate the indicator on human development has been updated). This confirms the stability of the EU commitment to providing support in these areas.

Seven new indicators have been added to monitor spending directed towards digitalisation, reform implementation, migration-related interventions, crisis-response, education, disability inclusion, inequality reduction and social reform.

For one indicator, the methodology is still under development: GERF 3.6 Number and share of EU funded external interventions supporting the implementation of political, economic and social reforms and joint agreements in partner countries.

IPA III

Level 3 indicators report on financial flows in 2023 and include all funds managed by the new financing instrument IPA III. Level 3 reporting excludes funds under the previous MFF (2014-2020), i.e., the presentation of payments does not present all payments made in 2023.

Some of the Level 3 indicators have associated spending targets, provided in the legal basis for IPA III (e.g., climate, biodiversity) and a gender mainstreaming target. For gender, the priority is derived from formal EU policy commitments endorsed by the Council (e.g., Gender Action Plan III).

For one indicator, the methodology is still under development: GERF 3.6 Number and share of EU funded external interventions supporting the implementation of political, economic and social reforms and joint agreements in partner countries.

6.5. Latest results

Please find the results under below links( 133 ):

For the old MFF:

·A consolidated version of the data (pdf)

·Detailed overview of all data (excel)

for the new MFF 2021-2027:

·A consolidated version of the data (pdf)

·Detailed overview of all data (excel)

6.6. Results of the implementation of the Gender Action Plan III

Table 17. Progress on the GAP III’s institutional and strategic objectives and indicators for the European Union Institutions