Europaudvalget 2022
KOM (2022) 0578
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EUROPEAN
COMMISSION
Brussels, 8.11.2022
SWD(2022) 353 final
PART 1/2
COMMISSION STAFF WORKING DOCUMENT
Accompanying the document
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND
THE COUNCIL
2022 Annual Report
on the implementation of the European Union's External Action Instruments
in 2021
{COM(2022) 578 final}
EN
EN
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Table of Contents
1.
Introduction: EU response to world developments in 2021 ........................................................... 1
1.1.
1.2.
1.3.
1.4.
1.5.
1.6.
1.7.
International Partnerships....................................................................................................... 3
European Neighbourhood Policy............................................................................................. 4
EU enlargement ....................................................................................................................... 6
Humanitarian aid and civil protection ..................................................................................... 8
Security and defence ............................................................................................................... 9
Crisis response and preparedness ......................................................................................... 10
Human rights and democracy ............................................................................................... 11
2. Delivering on our commitments: Promoting EU values and interests and fostering sustainable
development globally ............................................................................................................................ 14
2.1. Implementing the 2030 Agenda and other international and European commitments and
policies (including Global Gateway) .................................................................................................. 14
2.2.
2.3.
Means of implementation of the new agenda ...................................................................... 15
Programming (NDICI-Global Europe, IPA III, INSC, DOAG) .................................................... 16
2.4. Working better together with Member States and European Financial Institutions – A
‘Team Europe’ approach ................................................................................................................... 18
2.5.
2.6.
2.7.
3.
Mobilisation of the NDICI-Global Europe cushion ................................................................ 19
Policy Coherence for Development ....................................................................................... 19
Development effectiveness ................................................................................................... 20
Thematic Overview........................................................................................................................ 22
Working together towards the SDGs and results achieved with EU support ................................... 22
3.1.
Human Development ............................................................................................................ 22
Main achievements ....................................................................................................................... 22
SDG #1 Reduced Poverty ............................................................................................................... 24
SDG #3 Good Health and Well-being ............................................................................................ 25
SDG #4 Quality Education.............................................................................................................. 26
SDG #5 Gender Equality ................................................................................................................ 27
SDG #6 Clean Water and Sanitation .............................................................................................. 29
SDG #10 Reduced Inequalities ...................................................................................................... 30
Selected results 2018-2021 ........................................................................................................... 32
3.2.
Green Deal ............................................................................................................................. 33
Main achievements ....................................................................................................................... 33
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SDG #2 Zero Hunger ...................................................................................................................... 36
SDG #7 Affordable and Clean Energy ............................................................................................ 37
SDG #11 Sustainable Cities and Communities............................................................................... 38
SDG #12 Responsible Consumption and Production .................................................................... 39
SDG #13 Climate Action................................................................................................................. 40
SDG #14 Life below Water............................................................................................................. 42
SDG #15 Life on Land ..................................................................................................................... 42
Selected results 2018-2021 ........................................................................................................... 44
3.3.
Digitalisation, Science, Technology and Innovation .............................................................. 46
Main achievements ....................................................................................................................... 46
SDG #9 Industry, Innovation and Infrastructure ........................................................................... 50
Selected results 2018-2021 ........................................................................................................... 51
3.4.
Sustainable Growth and Jobs ................................................................................................ 51
Main achievements ....................................................................................................................... 51
SDG #8 Decent Work and Economic Growth ................................................................................ 55
SDG #17 Partnerships for the Goals .............................................................................................. 57
Selected results 2018-2021 ........................................................................................................... 59
Selected results 2018-2021 for the Enlargement region .............................................................. 60
3.5.
Migration ............................................................................................................................... 60
Main achievements ....................................................................................................................... 60
SDG #10.7 Reduced Inequalities ................................................................................................... 63
Selected results 2018-2021
,
.......................................................................................................... 64
Selected results 2018-2021 for the Enlargement region .............................................................. 64
3.6.
Governance, Peace and Security ........................................................................................... 65
Main achievements ....................................................................................................................... 65
SDG #16 Peace, justice and strong institutions ............................................................................. 68
Selected results 2018-2021 ........................................................................................................... 69
Selected results 2018-2021 for the Enlargement region .............................................................. 70
4.
Geographic Overview .................................................................................................................... 71
4.1.
Sub-Saharan Africa ................................................................................................................ 71
Introduction (policy developments) .............................................................................. 71
Working together towards the SDGs............................................................................. 72
Implementation ............................................................................................................. 73
4.1.1.
4.1.2.
4.1.3.
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4.1.4.
Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters ................................................................................................ 76
4.1.5.
4.2.
Crisis response and preparedness ................................................................................. 80
Asia and the Pacific................................................................................................................ 83
East Asia and South Asia................................................................................................ 83
Central Asia.................................................................................................................... 96
Middle East/Gulf region .............................................................................................. 102
The Pacific.................................................................................................................... 108
4.2.1.
4.2.2.
4.2.3.
4.2.4.
4.3.
Americas and the Caribbean ............................................................................................... 112
Americas ...................................................................................................................... 112
The Caribbean.............................................................................................................. 118
4.3.1.
4.3.2.
4.4.
European Neighbourhood ................................................................................................... 122
European Neighbourhood East ................................................................................... 122
European Neighbourhood South................................................................................. 140
4.4.1.
4.4.2.
4.5.
Enlargement (Western Balkans and Turkey) ....................................................................... 154
Introduction (policy developments) ............................................................................ 154
Working together towards the SDGs........................................................................... 156
Implementation ........................................................................................................... 157
4.5.1.
4.5.2.
4.5.3.
4.5.4.
Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters .............................................................................................. 162
4.5.5.
4.6.
Crisis response and preparedness ............................................................................... 164
Overseas countries and territories (OCTs) .......................................................................... 164
Introduction (policy developments) ............................................................................ 164
Working together towards the SDGs........................................................................... 165
Implementation ........................................................................................................... 167
4.6.1.
4.6.2.
4.6.3.
5.
Managing Aid............................................................................................................................... 171
5.1.
Monitoring, reporting and evaluation................................................................................. 171
Reporting ..................................................................................................................... 171
Monitoring Systems and use of new IT platform ........................................................ 172
New reporting system on SDGs ................................................................................... 172
Evaluation: review of the work programme ............................................................... 175
Lessons learned ........................................................................................................... 177
5.1.1.
5.1.2.
5.1.3.
5.1.4.
5.1.5.
5.2.
Aid delivery modalities ........................................................................................................ 181
Budget Support............................................................................................................ 181
Blending ....................................................................................................................... 184
iii
5.2.1.
5.2.2.
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5.2.3.
5.2.4.
5.2.5.
5.3.
EFSD+, EU budget Guarantees .................................................................................... 186
Technical Assistance .................................................................................................... 187
Twinning and TAIEX ..................................................................................................... 187
Improving ways of working ................................................................................................. 188
Simplification of procedures ....................................................................................... 188
5.3.1.
5.4.
Communication & transparency ......................................................................................... 190
Communication ........................................................................................................... 190
Transparency ............................................................................................................... 191
Learning ....................................................................................................................... 192
5.4.1.
5.4.2.
5.4.3.
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1. Introduction: EU response to world developments in 2021
The coronavirus (COVID-19) pandemic continued to have a significant impact on the European
Union’s (EU’s) external relations throughout 2021. The Global Health Summit in Rome held in May
defined the common principles to overcome the current COVID-19 pandemic, but also to prepare for
future pandemics. The European Commission, Member States and financial institutions – acting in a
‘Team Europe’ approach – shared over 380 million vaccine doses, the majority of which was
channelled through the COVID-19 Vaccines Global Access (COVAX) mechanism, and also provided
substantial technical assistance to partner countries to combat the COVID-19 pandemic.
In March, the Commission made proposals to strengthen the EU’s
global humanitarian impact.
The
Communication on the EU’s humanitarian action
1
proposed key actions to expedite the delivery of
humanitarian aid by supporting humanitarian partners, expanding the donor base and addressing the
root causes of crises through a ‘Team Europe’ approach. As a milestone in its
development
cooperation,
the Neighbourhood, Development and International Cooperation Instrument – Global
Europe (NDICI-Global Europe), with an initial funding of EUR 79.5 billion, will finance EU cooperation
with non-EU countries from 2021 until 2027.
The off-budget
European Peace Facility,
for which the Commission acts as administrator for
assistance measures, was established on 22 March 2021. The implementation of the first assistance
measures adopted by the Council started during the year.
The EU further worked on a stronger and deeper cooperation with
Africa.
In October, EU and African
foreign affairs ministers met in Kigali, Rwanda, to take stock of the Africa-EU partnership and define
joint priorities ahead of the European Union-African Union Summit in February 2022. The
new
partnership agreement
(‘post-Cotonou’) between the EU and members of the Organisation of
African, Caribbean and Pacific States was initialled on 15 April 2021. It establishes a 20-year
framework for political and economic relations and cooperation priorities.
In October, the EU updated its
Arctic policy
to focus on climate action and environmental protection,
on green jobs and on increasing international cooperation across the Arctic region. During the 2021
International Ocean Governance Forum, the EU presented its recommendations on
ocean
sustainability.
At the EU-Western Balkans Summit at Brdo pri Kranju, Slovenia, held in October, the EU reaffirmed
its support for the European perspective of the Western Balkans and welcomed the commitment of
the Western Balkans partners to the European perspective. The Commission started to implement
the revised enlargement methodology reflected in the Commission’s 2021 Enlargement Package
2
adopted on 19 October.
The sixth
Eastern Partnership Summit
took place in December. The leaders of the EU institutions,
Member States, and Armenia, Azerbaijan, Georgia, the Republic of Moldova and Ukraine set out their
shared vision for the future of the Eastern Partnership. The summit endorsed the renewed agenda
for the Eastern Partnership, focusing on recovery, resilience and reform, and built on the two pillars
of governance and investment, as outlined in the proposal presented by the Commission and the
High Representative in July 2021. Following the military build-up in and around
Ukraine,
the
1
COM(2021) 110 final of 10 March 2021.
2
COM(2021) 644 final of 19 October 2021.
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European Council conclusions of 16 December
3
stressed the urgent need for
Russia
to de-escalate
tensions and highlighted that any further military aggression against Ukraine would have massive
consequences and severe costs in response, including restrictive measures coordinated with
partners.
In February, the European Commission and the High Representative adopted the new Agenda for the
Mediterranean
4
to renew the partnership with its
Southern Neighbourhood.
This also includes a
dedicated economic and investment plan with initiatives in strategic sectors to support long-term
socio-economic recovery.
Looking to Asia, possible cooperation with
China
on security and foreign policy was discussed at the
EU-China Strategic Dialogue on 28 September. The human rights situation in Xinjiang continued to be
a source of concern and, on 22 March, the EU imposed sanctions under the
Global Human Rights
Sanctions Regime.
Sanctions were also issued against individuals and entities from Eritrea, Libya, the
Democratic People’s Republic of Korea, Russia and South Sudan. Following the developments in
Afghanistan
over the summer the EU announced a support package worth EUR 1 billion for the
Afghan people and neighbouring countries, addressing the urgent needs in the country and the
region. During the
EU-India
Leaders' Meeting in Porto, the EU and India agreed a comprehensive
connectivity partnership that covers cooperation in the digital, energy, transport, and people-to-
people sectors.
Concerning the EU’s relations with the Americas, the
EU-Latin America and Caribbean
Leaders’
Meeting in December 2021 marked the resumption of bi-regional dialogue at the highest-level, six
years after the last summit.
In 2021, in spite of the constraints posed by COVID-19, the EU deployed six
election observation
missions
to The Gambia, Honduras, Iraq, Kosovo
*
, Venezuela and Zambia – smaller missions of
electoral experts, as well as follow-up missions, were also deployed to more than 10 countries.
Finally, in December, the EU launched its new flagship initiative: the
Global Gateway
5
. Its goal is to
connect goods, people and services around the world in a sustainable way. It will develop sustainable
and high-quality connections while ensuring financial sustainability, with funding from the EU, its
Member States, and European financial institutions totalling up to EUR 300 billion between 2021 and
2027.
Under the multiannual financial framework (MFF) 2021-2027, a single instrument, the
Neighbourhood, Development and International Cooperation Instrument-Global Europe (NDICI-
Global Europe), integrates most external financing instruments that existed as separate basic acts
under the former multiannual financial framework. This Annual Report covers the following external
financing instruments under the MFF 2021-2027: the NDICI-Global Europe, the Decision on the
Overseas Association, including Greenland (DOAG), the European Instrument for International
3
4
Council Conclusions of 16 December 2021.
JOIN(2021) 2 final of 9 February 2021.
*
This designation is without prejudice to positions on status, and is in line with UNSCR 1244/1999 and the ICJ
Opinion on the Kosovo declaration of independence.
5
JOIN(2021) 30 final of 1 December 2021.
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Nuclear Safety Cooperation (INSC) and the Instrument for Pre-Accession assistance (IPA III). This
Annual Report also covers ongoing programmes financed through instruments managed by
Commission departments in the previous MFF: the European Development Fund (EDF) and all
instruments funded by Budget Heading IV (Europe in the World), namely: the Development
Cooperation Instrument (DCI), the European Neighbourhood Instrument (ENI), the Instrument for
Pre-Accession (IPA), the Instrument contributing to Stability and Peace (IcSP), the Common Foreign
and Security Policy (CFSP), the European Instrument for Democracy and Human Rights (EIDHR), the
Partnership Instrument (PI), Humanitarian Aid, the Instrument for Nuclear Safety Cooperation (INSC)
and the Instrument for Greenland.
1.1.
International Partnerships
In 2021, in line with the new geopolitical ambition and commitment to the 2030 Agenda, the
Commission launched the Global Gateway, a new European strategy to boost smart, clean and
secure links in digital, energy and transport, and to strengthen health, education and research
systems across the world. It stands for sustainable and trusted connections that tackle the most
pressing global challenges, from climate change and protecting the environment, to improving health
security, boosting EU competitiveness and securing global supply chains. Global Gateway aims to
mobilise up to EUR 300 billion in investments between 2021 and 2027 using EU and Member States’
potential to underpin a lasting global recovery, taking into account our partners’ needs and the EU's
own interests. Global Gateway is about increasing investments promoting democratic values and
high standards, good governance and transparency, equal international partnerships, and green and
clean, secure infrastructures that can all catalyse private sector investment.
The Commission and the High Representative also put forward a new strategy to strengthen the EU's
contribution to rules-based multilateralism. The Joint Communication
6
lays out the EU's expectations
of and ambitions for the multilateral system. It frames a more strategic approach to our international
partnerships and alliances in the context of an evolving and more competitive multilateral
environment. It maps out the main goals and means at the EU's disposal, including its extensive
political, diplomatic and financial support to promote multilateral solutions to global challenges. In
this context, the EU actively continues to engage in development-related multilateral processes in
the United Nations (UN) and other fora.
In 2021, the COVID-19 pandemic continued to have dramatic consequences around the world. It
claimed millions of lives, halted economies, disrupted societies and exposed inequalities. It has also
set back progress in the implementation of the UN’s Sustainable Development Goals (SDGs) –
especially in the most vulnerable countries. The EU responded to the crisis beyond our borders using
the whole toolbox of our external action instruments. The SDGs remain the compass for charting
sustainable growth out of this multi-dimensional crisis.
Up to the end of 2021, in a ‘Team Europe’ approach, the EU, its Member States and European
financial and implementing agencies disbursed EUR 47.7 billion overall in support to partner
countries to address the acute and longer-term consequences of the pandemic and deliver on its
promises with concrete results. This disbursement exceeds by far the initial EUR 20 billion Team
6
JOIN(2021) 3 final of 17 February 2021.
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Europe support package pledged in spring 2020, a pledge which had increased to EUR 53.7 billion by
the end of 2021. The EU has also played a leading role in setting up the COVAX Facility, the only
global initiative supporting fair distribution of vaccines around the world. As of June 2021, the EU and
its Member States’ contribution to the COVAX Facility totalled over EUR 3 billion.
While addressing the impact of COVID-19 in the most vulnerable countries was the immediate
priority, the EU did not lose sight of the need to advance on the green and digital transitions. In our
pursuit of sustainable development for all, the global recovery provides opportunities to address the
needs of women and young people in particular.
The EU remains one of the few actors with a global presence and a comprehensive policy toolbox
able to respond and support our partners around the world. The EU and its Member States are
committed to taking account of development cooperation objectives in the external and internal
policies that affect developing countries. The 2017 European Consensus on Development reaffirmed
the importance of policy coherence for development.
The EU also worked to project EU interests abroad in areas ranging from trade and investment,
climate change, the protection of the environment, and migration, to security and defence, helping
to create a level playing field and contributing to the rules-based multilateral order.
1.2.
European Neighbourhood Policy
In 2021, the European Neighbourhood Policy (ENP) mobilised significant political and financial
support for its four priorities
7
and fully integrated the principles of inclusivity, differentiation and
shared ownership.
The EU continued to assist Neighbourhood countries in tackling the causes of instability through a
sustained focus on good governance and the rule of law and human rights, both in the Eastern and
Southern Neighbourhood. Significant efforts at country and regional levels continued to reinforce the
capacity of civil society across the region, as well as governments’ accountability. Similarly, the EU
continued to support prosperity in its Neighbourhood, aiming to unleash the untapped economic
potential through economic and investment plans.
The EU's relations with its Eastern neighbours are guided by the Global strategy and the revised
Eastern Partnership policy. At the Sixth Eastern Partnership Summit in December 2021, leaders of the
EU and Eastern partners endorsed the post-2020 renewed Eastern Partnership agenda focused on
recovery, resilience and reform. This vision is based on the two pillars of governance and
investments, under the overarching objective of strengthening resilience. The priority areas are: (1)
accountable institutions, the rule of law, and security; (2) resilient, sustainable and integrated
economies; (3) environmental and climate resilience; (4) resilient digital transformation; and (5)
resilient, gender-equal, fair and inclusive societies.
The European Commission will mobilise, through the regional economic and investment plan (EIP),
up to EUR 2.3 billion of funding from the EU budget over the next five years to support socio-
economic recovery. Using specific tools, including blending and guarantees, this could leverage up to
EUR 17 billion in public and private investments across the region. Flagship initiatives have been
7
The ENP’s priority areas are: good governance, democracy, human rights and the rule of law; economic
development for stabilisation; security; and migration and mobility.
4
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identified under the EIP for each partner country to kick-start implementation. While the Belarus
regime has decided to suspend its participation in the Eastern Partnership, the EU continues to
support citizens and civil society in Belarus.
In 2021 Ukraine and the EU continued to move closer together, and the impressive portfolio of
support programmes as well as the many ongoing policy dialogues made a significant contribution to
this effort. Considerable progress has been achieved in many areas, including in the judicial area,
especially tackling issues of rule of law and anti-corruption.
The situation in the Neighbourhood South remained challenging and the already dire socio-economic
conditions were aggravated by the consequences of the pandemic. In addition to that, the protracted
crisis in Syria continued to impact on the stability of the whole Middle East, while in Libya the
elections that were expected to be held in December in the context of the Berlin process were
postponed, leading to uncertainties as to the future of the transition process.
The March 2021 Brussels V Conference on supporting the future of Syria and the region reiterated
the political, humanitarian and financial commitment of the international community in support of
the Syrian people and the neighbouring countries most affected by the conflict.
Throughout the Neighbourhood South region, governance and human rights remained at stake, and
space for free expression and civil society was shrinking. Economic conditions remained a matter of
concern. Generating growth and jobs continued to be a priority, particularly for the youth that
represents a significant part of the population. Youth unemployment and lack of opportunities were
among the main drivers of migration. In addition, trade barriers were increasing and regional
integration remained limited, due to lack of cooperation among the countries themselves.
In this challenging context, in February 2021 the Commission and the High Representative adopted a
new Agenda for the Mediterranean to relaunch and strengthen the strategic partnership between
the EU and its Southern Neighbourhood partners. It was accompanied by an economic and
investment plan, identifying flagship initiatives which will enable the EU to focus resources on key
transformative sectors, and mobilise additional funds from International Financial Institutions and
the private sector. The EU Trade Policy Review Communication
8
adopted in February 2021 put
forward a sustainable investment initiative to interested countries in the Southern neighbourhood,
and expressed readiness to discuss with Morocco and Tunisia options to modernise trade and
investment relations. The Commission also stepped up efforts to ensure the proper implementation
of the free trade agreements concluded with countries in the Neighbourhood South region.
Migration remained high on the EU agenda. The EU continued to support those affected by the crises
in Syria and Libya by assisting migrants, displaced persons, refugees and host communities. This was
achieved mainly through the two dedicated Trust Funds (the EU Emergency Trust Fund for Africa /
the North Africa window and the EU Regional Trust Fund in Response to the Syrian crisis / Madad).
Although both Trust Funds expired at the end of 2021, the implementation of ongoing actions will
continue and will provide a bridge towards new actions under the 2021-2027 programming. In the
Eastern Neighbourhood, the EU reacted quickly to Belarus’s instrumentalisation of migrants by
recalibrating EU assistance away from the central Belarussian authorities, while at the same time
stepping up support for the people of Belarus. Moreover, following the crisis in Afghanistan, the EU
8
COM(2021) 66 final of 18 February 2021.
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monitored closely arrivals from the country to the EU’s neighbouring regions, and expressed
readiness to provide support where needed.
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 European
Green Deal, Digital transformation and the regional economic and investment plans. TAIEX (Technical
Assistance and Information Exchange) mobilised over 8 000 participants and Twinning pooled EUR
155 million worth of assistance in public-to-public projects between Member States’ Administrations
and Partner Countries.
1.3.
EU enlargement
The enlargement methodology was revised in 2020 to further strengthen the accession process by
making it more predictable, more credible, dynamic and subject to stronger political direction. During
the first political intergovernmental conferences the EU held with Montenegro and Serbia in June
2021, the two countries agreed to apply the revised methodology. The first negotiating cluster with
Serbia (Cluster 4 on the Green Agenda and sustainable connectivity) was opened at another
intergovernmental conference with Serbia in December 2021, which also demonstrated the EU’s
commitment to the accession process.
On 19 October 2021, the European Commission adopted the 2021 Enlargement Package, the first
one prepared under the revised methodology. As in previous years, the package took stock of
developments since the previous Enlargement Package adopted in October 2020. Following the
cluster approach for the first time, it examined the progress made by the Western Balkans and
Turkey, the challenges encountered and reforms to be addressed, and set out conclusions and
recommendations for the period ahead. It took into account the specific circumstances, including the
COVID-19 pandemic, which had influenced developments in the EU and the region.
Progress on the enlargement agenda was accompanied by the kick-off of the implementation of the
EUR 9 billion economic and investment plan (EIP) and the Green Agenda for the Western Balkans.
Adopted by the Commission in October 2020, the Plan aims to bridge the socio-economic gap
between the region and the EU and associate the region with key EU initiatives and priorities of the
current Commission, including the green and digital transition, promotion of innovation and
connectivity, and support for the development of the private sector and human capital. The EIP also
carries a strong regional cooperation element, by supporting the gradual establishment of a Common
Regional Market in the Western Balkans. The EIP relies on the successful roll-out of the Instrument of
Pre-accession Assistance (IPA III), which was adopted in the last quarter of 2021. The Commission,
together with the beneficiary partners, successfully concluded the first IPA III programming exercise
committing more than EUR 4.1 billion with 75 % of this amount contributing directly to the EIP, and
including 21 flagship investment projects chiefly in the fields of transport, energy and green
transition.
The commitment of the EU and its Member States to close cooperation with the region was also
epitomised in two summits in 2021: the EU-Western Balkans Summit in Brdo (October) and the Berlin
Process Summit in Berlin (July). Both summits focussed on tightening regional cooperation, as well as
political support for the initiatives related to the implementation of the EIP.
In particular, the Western Balkan leaders adopted a detailed action plan for the implementation of
the Green Agenda, a roadmap for the reduction of roaming charges between the EU and the region
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was prepared, the EU launched the Agenda for the Western Balkans on Innovation, Research,
Education, Culture, Youth and Sport, and the region adopted action plans for rail, road, road safety,
transport facilitation and waterborne transport developed under the Transport Community.
More limited progress was achieved with regards to the implementation of the Common Regional
Market agreed at the Berlin Process Summit in Sofia in 2020. Work was concluded at technical level –
with support of key regional organisations like the Regional Cooperation Council and
the
Central
European Free Trade Agreement CEFTA – on a number of important agreements relating to freedom
of movement and mutual recognition of academic and professional qualifications; however, political
obstacles prevented their adoption and entering into force.
Following the de-escalation in the Eastern Mediterranean, dialogue and cooperation with Turkey
increased in 2021, in particular in the areas of common interest like climate change, trade, health,
migration and security. Nevertheless, the situation in Varosha in Cyprus, Turkey’s backsliding on
reforms, its deviations from the obligations under the Customs Union and its assertive foreign policy
actions, continued to complicate EU-Turkey relations as well as Turkey’s relations with individual
Member States.
The EU’s serious concerns on the continued deterioration of democracy, the rule of law, fundamental
rights and the independence of the judiciary were not addressed, and Turkey’s accession
negotiations remained at a standstill. Following the review of the framework for restrictive measures
in response to Turkey’s unauthorised drilling activities in the Eastern Mediterranean, the Council
extended these for another year until 12 November 2022. The March 2016 EU-Turkey Statement
continued to deliver results and Turkey plays a key role in addressing migration along the eastern
Mediterranean route.
The year 2021 continued to be marked by the impact of the COVID-19 pandemic. To address these
challenges, the EU, itself seriously affected, provided extensive support to governments particularly
in the Western Balkans. In 2020, the EU reallocated financial assistance in view of the urgencies faced
by the region, both in terms of health and socio-economic needs. The Commission has mobilised a
package of over EUR 1.6 billion to the benefit of Western Balkans citizens and businesses. Both the
Economic Reactivation Package and the package of support to vulnerable groups and the health
sector (including for access to vaccines) started to be implemented in 2021. In addition, a new
project was signed with the World Health Organisation (WHO), which focuses on promoting COVID-
19 vaccination roll-out, building health hazard preparedness and taking steps towards ensuring
financing for universal healthcare. By the end of 2021, 89 % of contracts and 61 % of payments of the
IPA-related COVID-19 financial assistance package had been achieved. The COVID-19 response for
the Western Balkans includes a EUR 70 million grant for vaccine purchases and administration, which
enabled them to receive 651 000 vaccine doses in the spring and summer across the region with an
additional 400 000 in December in Albania alone, and also significant quantities of vaccine related
equipment were supplied.
Turkey chose not to request the redirection of EU grant funding under the IPA programme or the
Facility for Refugees for the COVID-19 response. However, under existing financial commitments,
contingencies and savings were mobilised. In total, support to the Western Balkans and Turkey from
the EU and its Member States amounted to more than EUR 5.2 billion. In 2021, North Macedonia,
Albania, Serbia, Montenegro and Turkey successfully joined the EU Digital COVID-19 Certificate
scheme.
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1.4.
Humanitarian aid and civil protection
The year 2021 was still largely driven by the lasting COVID-19 crisis – a global health emergency that
continued to require an unprecedented, coordinated response both within and outside the EU. In
addition, large-scale disasters that occurred during the summer months of 2021 - forest fires in the
south of Europe and floods in Western Europe - highlighted the impact of climate change.
Humanitarian needs continued to increase to an all-time high, driven largely by the resurgence of
conflicts, combined with the impact of climate change, environmental degradation, global population
growth and failed governance. In 2021, the Commission delivered a strong and coordinated response
in Europe and beyond and was a key player in tackling the COVID-19 crisis globally.
In March 2021, the
Commission Communication
on ‘the EU’s humanitarian action: new challenges,
same principles’
9
was adopted, which sets out how the EU, with its partners and other donors, can
address more effectively the growing humanitarian needs and provide a better enabling environment
for the delivery of humanitarian aid. The Communication identified a number of emerging policy
approaches, which will be further developed in the coming years in conjunction with existing policies.
As part of the Communication, the Commission laid the ground for establishing a European
Humanitarian Response Capacity: a new instrument that enables the Commission to directly fill
critical gaps in the delivery of humanitarian assistance, particularly in the area of humanitarian
logistics and supply chain.
The Commission had to intervene in support of humanitarian organisations in the field in a wide
range of crisis-affected countries and regions, such as Afghanistan, Syria, Turkey, Yemen, South
Sudan, Venezuela, the Sahel region and Ukraine. The larger part of EU humanitarian funding was
dedicated to addressing needs arising from protracted crises, mainly driven by conflict and
compounded by COVID-19. Humanitarian operations were deployed in more than 80 countries,
covering 98 % of the countries for which the UN launched an appeal.
In 2021, specific attention was given to support the response to the COVID-19 pandemic in Africa. To
this end, the Commission mobilised EUR 100 million with a view to assist national health systems in
implementing vaccination campaigns against COVID-19 and to facilitate the ‘last mile delivery’ of
vaccines.
In order to contribute to address global climate change in humanitarian aid, the Commission
developed in 2021 minimum environmental requirements for partners in priority areas where readily
available solutions can provide the greatest environmental benefits. These were launched at the
European Humanitarian Forum in March 2022.
The EU Civil Protection Mechanism (UCPM) was activated an unprecedented 114 times in 2021, for a
wide range of disasters, and was in a position to provide assistance in 91 % of the cases. Even with
resource constraints and competing demands on a global scale in response to the pandemic, the
UCPM facilitated the delivery of numerous items of critical personal protective and medical
equipment, including almost 30 million COVID-19 vaccine doses. 95 air operations were organised
under UCPM to evacuate EU citizens and persons under EU duty of care from Afghanistan. The UCPM
response outside Europe was effective, with an 87 % response rate to the 78 requests submitted
through the Mechanism.
9
COM(2021) 110 final of 10 March 2021.
8
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The rescEU stockpile established in March 2020 and further developed throughout 2020 and 2021
consists of an EU safety net stockpile of COVID-19 countermeasures, Personal Protective Equipment
items (e.g. masks, million gloves etc.) and medical equipment (ventilators, oxygen concentrators)
mobilised both inside and outside the EU. The rescEU stockpile facilitated improved preparedness
that enabled the UCPM to facilitate the delivery of millions of personal protective equipment items,
medical counter measures and vaccines, both to non-EU countries and to EU Member States and
Participating States.
1.5.
Security and defence
2021 was a year of transitions. Geopolitical changes have intensified with power politics repeatedly
challenging the EU and its values. The COVID-19 pandemic continued to exacerbate an already
challenging security environment. The EU continued its efforts to combat the pandemic through a
collaborative crisis management approach, and through its ‘Team Europe’ approach the EU and its
Member States have shared more than 385 million vaccine doses with partner countries.
In addition to handling the pandemic, the EU responded to one crisis after another, with Belarus,
Ukraine, Mali, Sudan, Afghanistan, Ethiopia and Venezuela dominating the international and EU
agenda. In 2021, the European External Action Service (EEAS) contributed to the consular crisis
response deployed by Member States to coordinate efforts to repatriate EU citizens affected by
consular crises, in particular in Afghanistan, Nepal, Ethiopia, and in the wake of the border measures
taken during the Omicron-variant COVID-19 outbreak. The UCPM was used to finance these
evacuation/repatriation operations.
By establishing the European Peace Facility (EPF) on 22 March 2021, the EU expanded its ability to
provide security for its citizens and its partners. Notably, it enables the EU to support its partners
with all types of military equipment and security infrastructure, in compliance with the highest
human rights standards. In 2021, EPF-funded actions amounted to almost EUR 377 million, of which
EUR 260 million supported assistance measures. The bulk of the support went to the military
components of African-led Peace Support Operations previously funded under the African Peace
Facility in Somalia and the Sahel. Other assistance measures served to provide military equipment
linked to Common Security and Defence Policy (CSDP) missions/operations, such as in Mozambique,
and strengthen the military and defence capacities of partners in the Eastern Neighbourhood and the
Western Balkans. The EPF also provided EUR 117 million in common costs for military CSDP missions
and operations.
On 15 October 2021, the Council adopted a Decision launching the European Union Military Training
Mission in Mozambique (EUTM Mozambique)
10
. The mission supports a more efficient and effective
response by the Mozambican armed forces to the crisis in the Cabo Delgado province, by providing
training and capacity building. Over two years, the strategic objective is to support the capacity
building of the units of the Mozambican armed forces that will be part of a future Quick Reaction
Force. In particular, the mission will provide military training including operational preparation,
specialised training on counterterrorism, and training and education on the protection of civilians,
especially women and girls in conflict, and provide compliance with international humanitarian law
and human rights law.
10
Council Decision (CFSP) 2021/1818 of 15 October 2021
launching the European Union Military Training
Mission in Mozambique (EUTM Mozambique).
9
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Furthermore, the EU continued enhancing its role as a global actor in conflict analysis and
prevention. The EEAS engaged in regular Horizon Scanning and launched – in close cooperation with
Commission services and EU Delegations - approximately 25 conflict analyses in countries deemed at
risk of instability or violent conflict, either as part of the EU conflict Structural Country Assessment
(SCA), or as required by the NDICI-Global Europe Regulation
11
. EU Conflict Analyses identify EU
conflict prevention actions, inform EU security and defence engagements, and help to ensure the
conflict sensitivity of EU external action (including EPF support). The EEAS furthermore started to
implement the 2020 Concept on EU Peace Mediation carrying out several mediation support
missions and developing innovative approaches to mediation, including Article 28 actions.
2021 provided further evidence that without peace the efforts to eradicate poverty and inequality
will be seriously compromised. The EU therefore continued to promote an integrated approach to
peace and stability, working in over 50 countries affected by conflict and fragility. During 2021, the
EU supported security targeted actions such as Security Sector Reform, effective border
management, tackling organised crime, counterterrorism, and countering violent extremism, and
addressed root causes of insecurity and grievances, such as access to natural resources, governance,
support to civil society, and many others. Moreover, in the digital era, sustainable development is
closely linked with the presence of a global, open stable and secure cyberspace. In this vein, in 2021,
the EU invested to support the resilience of partner countries in the cyber domain, including through
support to civilian and military critical infrastructure.
In November 2021, the EEAS presented the Strategic Compass to the EU Member States. The
Strategic Compass defines the EU’s goals in the area of security and defence and link these to
concrete objectives and deliverables for the next 5-10 years. It provides a common answer to the
threats and challenges the EU is facing, as identified in the first-ever comprehensive threat analysis
conducted in 2021. It guides the EU’s efforts on how to better act and prepare, anticipate and secure,
invest and innovate, and cooperate with and support partners.
NATO and the EU continued to deepen their cooperation. Progress has been made in a number of
areas within 74 common proposals, including in the context of the COVID-19 pandemic, such as
countering disinformation and hostile propaganda, responding to cyber threats and strengthening
resilience and civil preparedness. NATO and the EU are also increasingly involved in each other’s
exercises. This helps NATO and the EU to improve their knowledge of each other’s working methods
and their ability to coordinate.
1.6.
Crisis response and preparedness
Despite the continued challenge posed by the COVID-19 pandemic, the transition to the new Multi-
annual Financial Framework and a new single financing instrument, the EU continued to implement
its integrated approach to conflicts and crises. This included timely crisis response interventions
under the Rapid Response Pillar of the Neighbourhood, Development and International Cooperation
Instrument-Global Europe (NDICI-Global Europe) and common foreign and security policy 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
11
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
10
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human rights. Furthermore, 2021 was the first year for both the
European Defence Fund
and the
European Peace Facility.
The EU 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. Furthermore, the EU operates civilian and military
missions worldwide under the Common Security and Defence Policy which focus on wide-ranging
action from support for border management to training local police.
Through its actions, the EU contributed to:
conflict prevention;
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 is focused on the internal/external security nexus, including in the area of counterterrorism
and the prevention of violent extremism, and on assisting reforms in the area of the rule of law and
anti-corruption, as well as actions in other areas of risk, such as, security implications of climate
change and environmental degradation. Such areas are key for sustainable development and good
governance in partner countries that directly impacts the internal security of the EU itself.
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 both an
internal and external perspective.
The EU also continued to pursue its strategic interests through fostering dialogue on values and
global challenges with key partners across the world and through economic cooperation, trade and
investments. This boosts the EU's position as a credible partner that delivers and contributes to
fundamental principles related to human rights and gender equality, which are cross-cutting themes
in all EU policies.
Engagement with international organisations remains an EU priority and is reflected in its sustained
commitment to the rule-based multilateral order. Regular situation awareness exercises and
information-exchanges take place with the UN to coordinate international efforts in conflict and
post-conflict settings. Regular operational exchanges and working level discussions also take place
with the Organisation for Security and Co-operation in Europe and with other international
organisations and agencies to avoid duplication and to optimise results of EU external action.
1.7.
Human rights and democracy
In a global context of continued shrinking civic and democratic space and multiple attacks on the
universality of human rights exacerbated by the COVID-19 crisis, the EU reaffirmed its unconditional
support to the protection and promotion of human rights, including gender equality, and democracy
worldwide. The adoption, on 8 December 2021, of the NDICI-Global Europe programme on Human
Rights and Democracy for the period 2021-2027, worth EUR 1.5 billion, demonstrates the seriousness
of the EU’s commitments in this field.
11
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In 2021, the EU continued to work to advance the human rights and democracy agenda at country,
regional and international level.
At country level, the EU supported 132 new initiatives led by civil society organisations, in particular
local ones, to protect and promote human rights in over 70 partner countries. After a marked slow-
down due to COVID-19 restrictions, electoral observation activities took a fresh start with the
successful deployment of six EU election observation missions in Africa (Zambia, the Gambia), Latin
America (Honduras, Venezuela), the Middle East (Iraq) and Europe (Kosovo) to assess and help
improve electoral processes.
At regional and international levels, the EU continued to support international and regional human
rights organisations and systems, including the Office of the High Commissioner for Human Rights
(OHCHR), the International Criminal Court (ICC), the Council of Europe, the Inter-American
Commission for Human Rights and the Inter-American Court of Human Rights, as well as the Global
Campus of Human Rights, a unique network of 100 universities around the world advancing human
rights and democracy education.
Support also took place in more restrictive environments with continuing support to provide life-
saving assistance to human rights defenders among others. Partnerships were concluded with civil
society organisations to counter the shrinking civil space in Latin America, Asia, Africa, the Eastern
Partnership and the Maghreb region, with a focus on youth participation and empowerment through
digital means, and on women’s and girl's empowerment. Actions have also been implemented to
track the impact of COVID-19 and respond to the challenges it has created for global democracy –
including support to independent media to ensure they can continue to operate, providing essential
information on the pandemic.
Between 2014 and 2021 approximatively 13 228 Human Rights Defenders (HRDs) at risk and their
family members have been supported by direct emergency grants by Protect Defenders and the EU
Emergency Fund. In 2021 alone, more than 4 445 HRDs and family members were supported.
Among key democracy support actions that continued during 2021 was the ‘Global
Monitor of
COVID-19’s Impact on Democracy and Human Rights’
a ‘one-stop’ online global monitoring platform
(a ‘tracker of trackers’), implemented by the International Institute for Democracy and Electoral
Assistance (IDEA), with data and brief country analysis for 165 countries around the world.
The EU is also working closely with like-minded partners to support human rights and democracy. In
December 2021, President von der Leyen represented the European Commission at the first Summit
for Democracy hosted by the President of the United States, Joe Biden. President von der Leyen
announced the new Global Europe Human Rights and Democracy programme, mentioned above. An
ambitious global Team Europe Democracy initiative was also launched, providing a platform to better
coordinate actions between EU Member States, and enhance our support to the rule of law,
accountability and good governance projects in partner countries.
The implementation of the NDICI-Global Europe programmes and their programming on human
rights and democracy is now well under way. The vast majority of partner countries will have major
initiatives promoting human rights and the rule of law and addressing democratic governance. They
will also benefit from a range of new global initiatives on issues such as political participation and
independent media. In addition, the Delegated Act supplementing NDICI-Global Europe provides a
12
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thematic target for the geographic programmes of at least 15 % for human rights, democracy and
good governance.
In 2021, the EU used for the first time the Global Human Rights Sanctions Regime it had adopted in
December 2020. Sanctions were issued against individuals and entities from China, Eritrea, Libya, the
Democratic People’s Republic of Korea, Russia and South Sudan, who are responsible for serious
human rights violations and abuses, ranging from torture, extrajudicial executions and killings to
enforced disappearance of persons, arbitrary arrests or detentions and the systematic use of forced
labour.
13
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2.
Delivering on our commitments: Promoting EU values and
interests and fostering sustainable development globally
2.1. Implementing the 2030 Agenda and other international and European
commitments and policies (including Global Gateway)
The EU has highlighted that the severe economic crisis brought about by the pandemic is affecting
the progress made in achieving the Sustainable Development Goals (SDGs), and that the global
recovery must be green, digital, inclusive, just, and sustainable, as well as geared towards the SDGs
(e.g., through the Joint Communication on multilateralism
12
). The EU’s commitment to the 2030
Agenda and its SDGs has even greater relevance by providing an impetus to ‘building back better’
after the pandemic towards a more inclusive, sustainable, just and resilient future for all, based on
the 2030 Agenda that leaves no one behind. The EU has reiterated its strong commitment to
implement the SDGs: ‘our action will remain guided by the 2030 Agenda and its SDGs both internally
and externally’.
In 2021, the EU relaunched the European Semester as an instrument refocusing on the SDGs and
integrated the SDGs in the revision of Better Regulation
13
. The latter implies that all Commission
services should identify and assess the contribution to relevant SDGs in all impact assessments,
legislative proposals and evaluations.
Actions to simultaneously pursue EU global priorities and the SDGs have been taken further in a
number of areas, including the recent revision of the Global Europe Results Framework (GERF), the
Global Europe instrument adopted in June 2021, the programming guidelines and all the multiannual
indicative programmes, each of which refers to the relevant SDGs under each priority area.
The EU continued to highlight the link between its main priorities and its commitment to implement
the SDGs in its major milestones in 2021, such as the Communication on ‘A renewed
multilateralism’
14
and the recent Joint Communication on Global Gateway
15
.
Earlier in 2021, the EU put forward a new strategy to strengthen the EU's contribution to rules-based
multilateralism. The EU will use all of the tools at its disposal, including its extensive political,
diplomatic and financial support, to promote global peace and security, defend human rights and
international law, and to promote multilateral solutions to global challenges. To respond successfully
to global crises, threats and challenges, the international community needs an efficient multilateral
system, founded on universal rules and values and with the UN at the core of the multilateral system.
The Joint Communication on Global Gateway is the European Union’s offer to partner countries to
accelerate their twin transitions. It provides them with a sustainable plan to respond to their
infrastructure needs and builds on the achievements of the 2018 EU-Asia Connectivity strategy.
Global Gateway will focus on infrastructure that responds to various current challenges and be
framed in the geopolitical context. It is anchored in five policy drivers: (1) digitalisation, (2) climate
and energy, (3) transport, (4) health, and (5) education and research. As stated in the
12
13
JOIN(2021) 3 final of 17 February 2021.
SWD(2021) 305 final of 3 November 2021.
14
Ibid.
15
JOIN(2021) 30 final of 1 December 2021.
14
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Communication, Global Gateway is fully aligned with the UN’s 2030 Agenda and its SDGs, consistent
with the EU sustainability brand.
Figure 1: How the priorities of Global Gateway contribute to the SDGs.
16
2.2.
Means of implementation of the new agenda
A mix of financial and non-financial resources are required to implement the 2030 Agenda, especially
in the wake of the COVID-19 pandemic. In line with the Addis Ababa Action Agenda, the EU supports
a comprehensive and integrated approach to mobilising financing from all available sources to meet
the SDGs and the EU has been further expanding its financial toolbox. This is enhanced by closer
cooperation with ‘Team Europe’ partners which should lead to more complementarity, synergies,
and multiplier effects, in line with the Council Conclusions on the European Financial Architecture for
Development
17
.
The EU is helping partner countries make the most of the diverse financing sources available to
support SDG implementation. In 2021, the EU has continued to support countries in their
implementation of Integrated National Financing Frameworks (INFFs). The EU worked with UN
partners to develop INFF.org, a Knowledge Management Platform for the INFFs. 2021 also saw the
creation of an EU-UNDP (United Nations Development programme) Technical Assistance Facility on
INFFs. It offers technical expertise and country-level support to strengthen specific aspects of
national INFF processes in partner countries, for instance in Indonesia and Senegal.
Other more specific EU achievements in 2021 include bringing together aid, trade, investment,
domestic resource mobilisation and other policies designed to unlock the full potential of all financial
flows.
16
In the figure, the SDGs are represented under a specific Commission political priority to which they are
strongly associated, while noting that most SDGs contribute to varying degrees to several priorities.
17
Council Conclusions 9462/1/21 of 10 June 2021.
15
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The EU adapted and further developed its financial instruments and aid modalities for investments
outside the EU to deliver on its ambitious commitments to sustainable development and the
implementation of the SDGs. The EU has continued supporting mobilisation of public and private
investments for sustainable development in partner countries. Following the adoption of the NDICI-
Global Europe Regulation in June 2021
18
, the European Fund for Sustainable Development Plus
(EFSD+) started to be operationalised. Out of the total capacity of the EU External Action Guarantee
(up to EUR 53.45 billion), nearly EUR 40 billion of guarantee cover is planned to be made available to
reduce the risk of investment in partner countries and support their sustainable development. The
EFSD+ is also a key instrument for the EU response to the COVID-19 pandemic. In November 2021, a
EUR 200 million EFSD+ guarantee (COVAX II) was signed with the European Investment Bank (EIB),
increasing support for the COVAX Facility, which aims to secure fair and equitable access to safe
COVID-19 vaccines for all.
The private sector is a major contributor to sustainable and inclusive growth and the creation of
decent jobs and a key actor for the success of the SDGs. The EU has taken measures to promote local
private sector development in partner countries, notably through entrepreneurship and access to
finance support. Attractive investment climates and regulatory frameworks are also of paramount
importance for the private sector and accordingly, the EU promotes public-private dialogue
processes and events and has stepped up its assistance to investment climate reforms.
The EU is also facilitating the development of the total official support for sustainable development
(TOSSD) statistical measure to help identify available means of implementation for the SDGs. In 2021,
the first TOSSD dataset was published and, thanks to EU efforts, TOSSD was recognised by the Inter-
agency and Expert Group on SDG Indicators (IAEG-SDGs) as a data source for SDG indicator 17.3.1.
2.3.
Programming (NDICI-Global Europe, IPA III, INSC, DOAG)
Regarding the NDICI-Global Europe, with the exception of the Neighbourhood geographic
programmes, the programming exercise was completed in December 2021 with the adoption by the
College of 84 country, one multi-country, three regional, Erasmus+ and four thematic multiannual
indicative programmes (MIPs). All adopted MIPs are published on the Commission website
19
.
For the Neighbourhood, the two foreseen regional MIPs and two country MIPs were adopted and are
published on the Commission website
20
. The remaining country MIPs will be proposed for adoption
in the course of 2022 following progress on the extension and renewal of the joint documents with
partner countries (Partnership Priorities, Association Agendas and equivalent). As the basis for
programming, they will frame cooperation in the Neighbourhood and must be in place before related
MIPs are proposed for adoption.
The adopted MIPs set out priority areas for cooperation with partner countries and regions around
the world for 2021-2027. The MIPs also include the financial allocation for 2021-2024 (country level)
and for 2021-2027 (regional and thematic level) that will support this cooperation. For Sub-Saharan
18
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
19
https://ec.europa.eu/international-partnerships/global-europe-programming_en
20
https://ec.europa.eu/neighbourhood-enlargement/funding-and-technical-assistance/neighbourhood-
development-and-international-cooperation-instrument-global-europe-ndici-global-europe_en
16
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Africa, Asia and the Pacific and the Americas and the Caribbean this represents a total of EUR 26.3
billion. For the Neighbourhood this represents a total of about EUR 4 billion for the adopted MIPs.
Country allocations and Neighbourhood regional allocations for 2025-2027 will be decided at the
mid-term review.
The priorities have been defined in consultation with the relevant partners' authorities and through a
real ‘Team Europe’ approach, together with EU Member States, the European development finance
institutions, including EIB and European Bank for Reconstruction and Development (EBRD), as well as
the European Parliament. Consultations were also held with civil society organisations, including
women and youth organisations, local authorities, representatives from the private sector, the UN
and other like-minded partners. The agreed priorities underpinned the implementation of the EU's
Global Gateway strategy and are in line with the 2030 Agenda for Sustainable Development and its
SDGs and the Paris Agreement. For fragile contexts, the MIPs adopt a humanitarian-development-
peace nexus approach where possible. For the Neighbourhood, the MIPs integrate the priorities laid
out in the two key policy documents, which frame cooperation in the regions, namely the renewed
Eastern Partnership and the new Agenda for the Mediterranean and their accompanying economic
and investment plans.
For Sub-Saharan Africa, Asia and the Pacific and the Americas and the Caribbean countries and
regions, the MIPs will deliver on the overarching EU policy objectives: Green deal features in all MIPs;
Digital agenda features in over 80 % of the MIPs; Sustainable growth and decent jobs features in
around 75 %; Migration is covered by almost 60 %; Governance, peace and security features in nearly
90 %; Social inclusion and human development are covered in 95 %; with Education addressed in 80
% of MIPs; while gender equality and women’s empowerment are cross-cutting priorities in all MIPs.
All the country and regional MIPs are complemented by four thematic MIPs: Human rights and
democracy (EUR 1.5 billion); Civil society organisations (EUR 1.5 billion); Peace, stability and conflict
prevention (EUR 871 million); and Global challenges (EUR 3.6 billion). Finally, the Erasmus+ MIP,
financed by the geographic pillar, was adopted earlier in summer 2021 and it is co-financed by IPA III.
Regarding the Instrument for Pre-Accession Assistance (IPA III), in December 2021 the Commission
adopted the IPA III programming framework, an overarching strategic programming document for
the use of EU pre-accession funds in 2021-2027. It replaces the previous country-specific
programming documents. Under IPA III, programming of assistance is based on thematic priorities
under five Windows, rather than pre-defined country envelopes. The IPA III programming framework
is published on the Commission website
21
.
Regarding the European Union Instrument for Nuclear Safety Cooperation (EU-INSC), the MIP 2021-
2027 was also adopted in 2021.
Regarding the Decision on the Overseas Association including Greenland (DOAG)
22
, priority areas for
cooperation were jointly established with the Overseas countries and territories (OCTs) based on the
21
https://ec.europa.eu/neighbourhood-enlargement/enlargement-policy/overview-instrument-pre-accession-
assistance_en
22
Council Decision (EU) 2021/1764 of 5 October 2021
on the association of the Overseas Countries and
Territories with the European Union including relations between the European Union on the one hand, and
Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association, including
Greenland).
17
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overarching Commission policy priorities, notably Green Deal, Digital and Sustainable Growth and
jobs and the OCTs’ own priorities. In 2021, one regional MIP for Pacific OCTs was adopted together
with ten territorial MIPs.
2.4. Working better together with Member States and European Financial
Institutions – A ‘Team Europe’ approach
In line with the EU and its Member States’ long-standing commitment to 'working better together',
European leaders responded to the COVID-19 pandemic
23
with a package amounting to EUR 53.7
billion (committed up to the end of 2021) as a sign of unity and global solidarity with its partner
countries. This collective response – including European development financing institutions and
implementing agencies – to add new funds, redirect resources, ensure coordination and improve
delivery was branded a ‘Team Europe’
24
approach. It is designed to support partner countries in their
path to a sustainable recovery aligned with the SDGs.
The Council Conclusions of 23 April 2021
25
on Team Europe highlighted the importance of the Team
Europe approach beyond the COVID-19 response and added it to the EU External Toolbox. They
granted a central role to Team Europe initiatives (TEIs), flagship projects of the Team Europe
approach, around which European funding instruments and modalities coalesce to bring a
transformational impact and take the Team Europe approach to the next level.
In 2021, while continuing to implement the Team Europe COVID-19 response package, the EU and
Member States focused on promoting a green, digital, resilient and just global recovery linking grants
and investments to the SDGs. The COVID-19 recovery and Working Better Together were fully
embedded in NDICI-Global Europe multiannual indicative programmes (MIPs). As part of this
programming exercise, the EU and its Member States (together with the EIB and ERBD) jointly
identified 150 TEIs: 126 national, 23 regional and one thematic TEI on Democracy.
TEIs have already shown a qualitative improvement in how European actors on the ground are
joining-up in a ‘Team Europe’ approach and improving partner countries’ understanding of European
values and the impact of cooperation. Designing TEIs has improved coordination between the EU and
its Member States to enable a more action-oriented approach, including for gender mainstreaming
and targeted action in line with the Gender Action Plan III.
The NDICI-Global Europe Regulation
26
and the Team Europe Council Conclusions promote the
increased use of joint programming as the preferred approach to country programming, whenever
possible. Good progress was recorded on Joint Implementation, which helped to increase the impact
of EU funds. By December 2021, there were 14 joint programming documents in place globally.
Intensified efforts to reach the same level of commitment in preparation for future joint
programming are under way in another 19 partner countries. During 2021, joint programming
23
24
EU global response to COVID-19 (europa.eu)
Team Europe refers to the cooperation between the EU, its Member States and their diplomatic network,
finance institutions and implementing organisations, as well as the European Investment Bank (EIB) and the
European Bank for Reconstruction and Development (EBRD).
25
Council Conclusions 7894/21 of 23 April 2021.
26
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
18
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2636519_0024.png
documents, including strategies, were launched in Cambodia, Djibouti, Ecuador, Ghana, Laos,
Palestine
27
and Togo.
In addition, a ‘Team Europe’ approach is now also used in supporting the implementation of the
Global Gateway – the EU strategy that will leverage investments to boost sustainable links around
the world by defining a new model for strategic engagement across the EU and its Member States
and the private sector. In the Council Conclusions from 10 June 2021 on enhancing the European
Financial Architecture for Development (EFAD)
28
, EU Member States underlined the importance of
policy steer and the need for enhanced coordination amongst the different financial institutions and
other development actors to ‘deliver as one’ for greater efficiency and transformational
development impact.
The EU and its Member States also created a vaccine-sharing mechanism which has delivered already
over 255 million doses to partner countries up to the end of 2021.
2.5.
Mobilisation of the NDICI-Global Europe cushion
The Commission made full use of Global Europe’s emerging challenges and priorities cushion budget
of almost EUR 1 408 million for 2021.
Support to partner countries in fighting the COVID-19 pandemic has been the main driver of
mobilisations. A EUR 400 million contribution to the COVAX Facility from the cushion contributed to
doubling the EU’s support to this facility, which ensures vaccines reach lower income countries. In
the same vein, an additional EUR 450 million was mobilised to support President von der Leyen’s
State of the Union pledge
29
to support the provision of vaccines, enhance country absorption
capacity and cover other needs of the COVID-19 response, namely diagnostics, health systems and
therapeutics.
The use of the cushion has also supported the EU response to challenges related to migration and
forced displacement. Following the European Council conclusions of June 2021, the Commission has
proposed a package for 2021-2023 to continue supporting Syrian refugees in neighbouring countries.
As part of this package, in 2021, EUR 370 million was mobilised from the cushion to complement the
funding for continuing to ensure key interventions in the sector of education for Syrian refugees in
Turkey. Similarly, EUR 20 million was mobilised for migration-related actions in North Africa in order
to ensure the continuity of ongoing activities.
Lastly, EUR 168 million was mobilised to reinforce the Global Challenges programme, as part of the
top-ups embedded in recital 70 of the NDICI-Global Europe Regulation
30
.
2.6.
Policy Coherence for Development
The Commission continued to strengthen policy coherence for development (PCD) in accordance
with Article 208 of the Treaty on the Functioning of the European Union, which requires the EU and
27
This designation shall not be construed as recognition of a State of Palestine and is without prejudice to the
individual positions of the Member States on this issue.
28
Council Conclusions 9462/1/21 of 10 June 2021.
29
https://ec.europa.eu/commission/presscorner/detail/ov/SPEECH_21_4701
30
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
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its Member States to take account of the objectives of development cooperation in all its policies
which are likely to affect developing countries.
In April 2021 the Commission adopted the Communication ‘Better regulation: Joining forces to make
better laws’
31
, which contains an explicit commitment ‘to better consider the external implications of
internal policies and their significant impacts on third countries’, including better consideration of its
actors. This commitment became operational in November 2021 with the release of the revised
Better Regulation Guidelines
32
. They require impact assessments to analyse, when relevant, the
specific impacts of internal EU policies on third countries and to identify how EU actions contribute
to the SDGs. There is a growing consideration for the external dimension in EU legislation, not least
fostered through the implementation of the SDGs, which provide an explicit bridge between EU
internal and external actions.
In view of the pivotal role of EU delegations in monitoring impacts of EU policies in partner countries,
reporting from EU delegations on PCD issues was further reinforced. This is now a specific section in
the annual progress reports and external experts support the analysis. Over the years, the number of
reports is increasing, covering over 130 partner countries in 2021.
2.7.
Development effectiveness
The EU actively promotes the effectiveness of its development cooperation to achieve the best,
fastest and most sustainable impact for those most in need. The commitment of the EU and its
Member States to applying the Busan principles of effectiveness (country ownership, results,
inclusiveness, and transparency) is explicit in the European Consensus on Development and in the
NDICI-Global Europe Regulation
33
. The EU works with Member States on the implementation of
these principles, promoting common positions and practices on effectiveness in support of the 2030
Agenda. The impact of the pandemic in reversing many development gains and increasing poverty
and inequality means that effectiveness is more important than ever.
EU cooperation modalities operationalise the effectiveness principles, through capacity building,
policy reform and political dialogue. Budget support is a key modality for the EU, providing core
support to partner countries national systems and public expenditure programmes.
The EU actively uses its role as a member and supporter of the Global Partnership for Effective
Development Cooperation (GPEDC), where it represents European development providers on the
GPEDC steering committee, to get the buy-in of all development actors at partner country level,
including non-OECD (Organisation for Economic Co-operation and Development) donors, to build
coordinated and more effective development cooperation partnerships.
The EU leads on the GPEDC Action Area on Demonstrating the Impact of Effectiveness and, in this
role, has initiated a major research project to showcase how effectiveness delivers better impact and
promotes country level initiatives to strengthen the effectiveness and impact of development
management processes in individual sectors in partner countries. Throughout the year, the EU has
31
32
COM(2021) 219 final of 29 April 2021.
SWD(2021) 305 final of 3 November 2021.
33
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
20
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supported the reform of the global effectiveness monitoring system and a review of the operating
model and governance of the GPEDC. The EU has also promoted a renewed focus on effectiveness at
the OECD-Development Assistance Committee (OECD-DAC) to help DAC members to strengthen the
effectiveness of their programmes. As a result, the DAC is currently developing a modernised DAC
narrative on effectiveness, which will lay out the DAC understanding of its commitments on
effectiveness and how DAC members can help deliver this in partner countries.
In addition to the EU’s work to build global consensus on development effectiveness, it also pursues
greater effectiveness in its own development cooperation and that of EU Member States, through
the ‘Team Europe’ approach and joint programming initiatives. Team Europe initiatives (TEIs) both
benefit from and contribute to effectiveness. Greater effectiveness in sectors that TEIs focus on
create the conditions for faster and better impact. The EU ensures, through the design processes of
the TEIs, that opportunities to strengthen effectiveness are built into the initiatives.
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3.
Thematic Overview
Working together towards the SDGs and results achieved with EU support
The priorities of the current Commission have been translated into 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 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,
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.
The EU’s partnerships are based on dialogues aiming to converge EU political priorities and the
specific objectives of each partner country, with the SDGs as a central reference. Further to the
collective commitment of the EU and its Member States in the European Consensus on Development
to work together in partner countries, the key areas for working together towards the SDGs are joint
programming, the joint results frameworks and joint implementation. This approach to development
cooperation and international partnerships has been taken further in the COVID-19 response both at
multilateral level and in partner countries, through the ‘Team Europe’ approach as a key element of
the collective EU contribution to a global sustainable recovery aligned with the SDGs.
3.1.
Human Development
Main achievements
Health
The COVID-19 pandemic continued to disrupt societies in multiple ways and those that have been
most affected are those already deprived, leading to increasing inequalities. The EU strengthened
and adapted its collaboration with global health, education and gender equality initiatives to ensure
rapid adaptation of their support alongside a reorientation of EU country support to help partner
countries face COVID-19’s impact on human development.
To enable global access to COVID-19 vaccines, the Commission supported the COVAX Facility with
EUR 300 million in grant contributions and EUR 200 million in EFSD Guarantees to allow COVAX to
enter into Advance Purchase Commitments for delivery of vaccines to 92 of the poorest countries.
The Commission also contributed EUR 397 million to the Global Fund to fight AIDS, Tuberculosis,
Malaria allowing the Global Fund to finance life-saving interventions to limit the damage of the
pandemic on these killer diseases. The EU also continued its leading support to GAVI’s core work of
building immunisations systems, having pledged EUR 300 million to GAVI for the 2021-2025 period,
marking a 50 % increase in the Commission’s commitment compared to the previous period.
In May 2021, the Commission President announced a Team Europe initiative on manufacturing and
access to vaccines, medicines and health technologies in Africa with support of more than EUR 1
billion from the EU budget and the European development finance institutions such as the European
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Investment Bank (EIB). This amount will be further enhanced by contributions from EU Member
States.
The Commission has engaged with key countries, the pharmaceutical industry, and counterparts at
regional (African Union (AU), Africa Centres for Disease Control and prevention (Africa CDC) to
support vaccination including in humanitarian contexts, and the Africa Medicines Agency) and global
level (WHO) on the implementation of this initiative.
Education and skills
The COVID-19 pandemic continued to disrupt education for children and youth, particularly affecting
marginalised populations and particularly those that do not have access to digital means to benefit
from online education. The EU strengthened and adapted its collaboration with global education
initiatives and actors to ensure rapid response grants to help countries ensure continued learning –
including for children affected by conflicts and protracted crises. Ongoing EU country programmes
were reoriented, where possible, for a quick and safe reopening of schools, to catch-up on lost
learning and to continue strengthening education systems to provide quality education for every boy
and girl.
Inequalities
To contribute to the achievement of SDG 10 and to fight inequalities by building inclusive and
sustainable societies, the European Commission continued to put inequalities at the heart of the EU’s
international cooperation and developed specific tools to mainstream inequality-reduction as a
cross-cutting objective of all interventions.
In September 2021, the Commission published the three-volume reference document ‘Addressing
income inequalities through development cooperation’ to provide guidance and support to
Commission services to mainstream inequalities-reduction in cooperation with partner countries.
The reference document supports the ongoing effort of the EU to strengthen its approach to
development cooperation to address inequalities in its partner countries. It has so far contributed to
the successful integration of inequalities in regional and country MIPs.
The Commission also began developing an innovative Inequality Marker to fully track and report on
efforts to fight inequalities, creating a sound reporting and benchmarking system on the contribution
of EU development policy to the fight against inequalities
These tools are being translated into meaningful interventions, the result of strong partnerships and
synergies with Member States. The EU and its Members States are designing Team Europe ‘Equality
Flagship’ initiatives in countries where inequality is a significant challenge, a political priority and
where there is the political will. These initiatives will be transformational and key contributions to
reducing inequality and promoting good governance in partner countries. Moreover, in March 2021,
the European Commission and Agence Française de Développement (AFD)
announced
the Extension
of the EU-AFD Research Facility on Inequalities to support the implementation of research results in
pilot public policies to reduce inequalities in four middle-income countries: South Africa, Mexico,
Colombia and Indonesia.
Gender Equality
In 2021 the Implementation of the Gender Action Plan III (GAP III) started translating into actions to
make gender equality and empowerment of women and girls a priority in all EU external action.
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Gender equality was well integrated in the geographic programming and in its international
partnerships policy.
The EU committed that at least 85 % of all new external actions will have gender equality and
women’s and girls’ empowerment as a significant or principal objective by 2025. After one year of
GAP III implementation, for the EU external actions this score is at 70 %
34
. Corresponding
commitments are at EUR 9 263 million. Four per cent of actions committed in 2021 have gender
equality as their principal objective. See more details in annex 6.10 of this report.
Youth and Culture
Considering the impact that the pandemic has had on young people and whose futures are being
jeopardised, the EU enhanced youth engagement in recovery efforts. Youth Sounding Boards were
put in place at both global level and in several partner countries (such as Zimbabwe and Nigeria) to
give young people a voice on EU policies and action. Young people could also share their views on
and contribute to discussions on initiatives by participating in Youth Policy Labs (in the Western
Balkans for instance). Preparations and consultations started on a new EU action plan for youth
participation and empowerment in external actions, to ensure that policies and actions are relevant
for future generations and allow young people to help shape the future.
During the pandemic and lock-down periods, culture has played an important role in keeping
societies together, notably through digital means. EU actions for culture and creative sectors
contributed to recovery efforts in several ways and with a particular focus on young people to
enhance access to financing, building skills for jobs and to ensure respect of human rights and
cultural diversity.
SDG #1 Reduced Poverty
For almost 25 years, poverty has steadily declined, and the poverty rate halved in our partner
countries on average. EU cooperation has helped achieve this result, but the quest to end poverty
has suffered a setback with COVID-19.
The pandemic crisis is having particularly devastating consequences for the most vulnerable people,
resulting in an unprecedented increase in global poverty. The World Bank estimates that over 100
million people have been pushed into extreme poverty and around 118 million more people have
faced chronic hunger, making the economic and social consequences of COVID-19 more serious than
the virus itself.
The EU’s international partnerships interventions all pursue the primary objective of poverty
eradication. Yet, achieving this objective requires united action across all fronts. This is why the EU
and its Member States, acting in a ‘Team Europe’ approach, are working to support a sustainable
recovery and to achieve all SDGs. In this context, given the multidimensional dimension of poverty,
EU actions aiming at poverty eradication contribute actively to the pursuit of a range of SDGs (see
Figure 2).
34
The EU is following the OECD-DAC gender equality policy marker methodology to monitor annually its
commitments in actions and funding to gender equality in external action, for both ODA and non-ODA funds.
This calculation covers the following external financing instruments: NDICI, IPA III and CFSP.
24
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Figure 2: SDG 1 – Interlinkages with other SDGs
In 2021, our official development assistance (ODA) commitments towards our partner countries to
achieve SDG 1 (No Poverty) are estimated to be around EUR 3.5 billion (i.e., when intervention had
SDG 1 as a first and second main objective). This helped alleviate the consequences of the pandemic
in partner countries, and in particular for vulnerable groups. Social protection, through its
redistributive nature, proved to be a powerful instrument to mitigate increasing levels of inequalities
and poverty when aligned to partner countries’ policies. In 2021, the EU has continued its support for
building comprehensive and resilient social protection systems in partner countries. Humanitarian
assistance contributed to meeting the needs of the most vulnerable.
SDG #3 Good Health and Well-being
The COVID-19 pandemic continued to disrupt societies in multiple ways and those that have been
most affected are those already deprived, leading to increasing inequalities.
The EU strengthened and adapted its collaboration with global health, education and gender equality
initiatives to ensure rapid adaptation of their support alongside a reorientation of EU country
support to help partner countries face COVID-19’s impact on human development. EU actions to
contribute to good health and well-being are often directly associated not only to the pursuit of
SDG3 but also to a broader range of SDGs, given the interlinkages between SDGs (see Figure 3).
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Figure 3: SDG 3 – Interlinkages with other SDGs
To enable global access to COVID-19 vaccines, the Commission supported the COVAX Facility with
EUR 300 million in grant contributions and EUR 200 million in EFSD Guarantees to EIB loans, allowing
COVAX to enter into Advance Purchase Commitments, for the procurement and delivery of vaccines
to the 92 poorest countries. Additional support of EUR 10 million was provided to the COVAX
humanitarian buffer. The Commission has also committed EUR 100 million to support vaccine
deployment and rollout in Africa from its humanitarian budget. Through a ‘Team Europe’ approach,
around EUR 656 million in humanitarian support was provided by Commission services, of which EUR
203 million in 2021 was to vulnerable populations affected by the pandemic. The EU Humanitarian
Air Bridge and the Union Civil Protection Mechanism have facilitated the delivery of humanitarian aid
and the overall response to the pandemic.
The Commission also contributed EUR 397 million to the Global Fund to fight AIDS, Tuberculosis,
Malaria and allowed the Global Fund to finance interventions to limit the damage of the pandemic
on these three diseases. In May 2021, the Commission President announced a Team Europe initiative
on manufacturing and access to vaccines, medicines and health technologies in Africa with the
support of more than EUR 1 billion from the EU budget and the European development finance
institutions such as the European Investment Bank (EIB). This amount will be further enhanced by
contributions from EU Member States. The Commission has engaged with key countries, the
pharmaceutical industry, and counterparts at regional (AU, Africa CDC, Africa Medicines Agency) and
global level (WHO) for implementation.
SDG #4 Quality Education
The COVID-19 pandemic has wiped-out years of educational progress as many children continued
being deprived of education due to lock-downs, which exacerbated further existing vulnerabilities.
26
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Job loss and family income reduction have pushed a number of children into work during school
closure, they are risk of child labour and dropping out schooling if no social security measures are put
in place. As economies were increasingly put under stress, two-thirds of countries reduced their
education budgets thereby increasing existing global education financing gaps.
The EU advocated for sustainable funding for education, supported global reform efforts to ensure
better collaboration amongst education actors and the channelling of support in more coordinated
and efficient ways. The EU joined evidence-based advocacy efforts at two Global Education Meetings
to promote the right to quality education.
Given the importance of education for human development, the Commission decided to increase its
support from around 7 % to at least 10 % of development programmes managed by DG INTPA under
NDICI-Global Europe and the Decision on the Overseas Association including Greenland (DOAG)
35
funding with a focus on the countries that are furthest behind the sustainable development
education goals. The EU contribution to the Global Partnership for Education was increased by nearly
50 % for 2021-2027 to EUR 700 million helping 175 million boys and girls to learn and get a further 88
million children in school and prevent children being out of school and socially excluded.
The Erasmus+ programme was stepped up to contribute to recovery efforts and to strengthen higher
education institutions and systems in partner countries. The budget for Sub-Saharan Africa was
multiplied by 3.5 times for 2021-2027 and the first calls for applications were launched to provide
young people with opportunities to study at European universities and enhance prospects of
employment. Furthermore, the EU endorsed the G7 Ministerial Declaration on girls’ education in
May 2021, committing to ensure by 2026 that 40 million more girls will be in school, and 20 million
more girls will be able to read in low and lower-middle income countries. The EU also remains a
strong advocate for the Safe Schools Declaration.
The EU continued its strong leadership in education in emergencies, dedicating 10 % of EU
humanitarian aid to restore and maintain access to safe, quality and inclusive primary and secondary
education during humanitarian crises. The EU supported over 2.3 million children to quickly enter or
return to learning opportunities.
SDG #5 Gender Equality
In 2021 the implementation of the EU Gender Action Plan (GAP) III - An ambitious Agenda for gender
equality and women’s empowerment in EU external action
36
, adopted by the College on 25
November 2020, went at full speed with bold political and operational engagements at country,
regional and international levels. With the new multiannual financial framework (MFF) also starting,
the focus was put on integrating GAP III priorities and objectives in the geographic programming,
paving the way for gender mainstreaming in all sectors including new thematic areas such as green
and digital transitions and blended finance. A GAP III ‘country-level implementation plan’ was
developed in each country by the EU Delegation in cooperation with EU Member States, identifying
political objectives and concrete programmes through broad-based consultations with all
35
Council Decision (EU) 2021/1764 of 5 October 2021
on the association of the Overseas Countries and
Territories with the European Union including relations between the European Union on the one hand, and
Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association, including
Greenland).
36
JOIN(2020) 17 final of 25 November 2020.
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stakeholders, cementing greater EU cooperation and joint initiatives. Several Team Europe initiatives
include specific actions supporting gender equality results. Specific resources and accountability
measures, including indicators, contribute to SDG 5.
The EU committed that at least 85 % of all new external actions will have gender equality and
women’s and girls’ empowerment as a significant or principal objective by 2025. After one year of
GAP III implementation, for the EU external actions this score is at 70 %
37
. Corresponding
commitments are at EUR 9 263 million. Four per cent of actions committed in 2021 have gender
equality as their principal objective. For more details, see annex 6.10 of this report.
GAP III calls to implement at least one programme dedicated to gender equality in each country and
region by 2025. Numerous ambitious initiatives were already identified, mixing different support
modalities such as projects, budget support, and blended finance. There has been a swift uptake of
the new priorities on green transition and digital transformation while furthering support for the
elimination of gender-based violence, economic and social empowerment, participation and
leadership, a stronghold of EU support to partner countries for many years.
Dialogue and cooperation with governments, the private sector and civil society were reinforced at
all levels. In 2021 funding to women’s rights organisations and movements increased by 27.7 %
compared to 2020. The Commission continued to drive the international agenda and agreements
toward fulfilling gender equality and women’s empowerment, advancing the promotion of the
women, peace and security (WPS) agenda, notably as one of the co-leaders of the Action Coalition on
Gender-Based Violence of the Generation Equality Forum, and foregrounding the EU-UN Spotlight
Initiative. The Council Conclusions on Afghanistan in 2021
38
refer to respect for women’s and girls’
rights as one of the benchmarks for engagement with the de facto authorities. As such, the EU’s
support to the basic needs of the Afghan people pays special attention to the rights of women and
girls.
Actions are in place to systematically implement the WPS agenda including, for example, specific
support to women mediators, integrating gender perspectives in the prevention of violent extremism
and increasing and strengthening the participation of women in Common Security and Defence
Policy operations and missions.
Humanitarian objectives were met in both policy, funding and advocacy. The EU continued to engage
as an active member of the new Call to Action on Gender-Based Violence.
In line with the EU commitment to ‘lead by example’, a set of initiatives were taken to set in place a
gender-responsive leadership, while internal capacity was reinforced through extensive training,
guidance, and a refreshed network of gender focal persons, equality coordinators, and gender
advisors. The new GAP III reporting system is operational and the Strategic and institutional
objectives and indicators
39
were monitored (see annex 6.10), showing overall good progress. Solid
foundations for the implementation of GAP III are in place.
37
The EU is following the OECD-DAC gender equality policy marker methodology to monitor annually its
commitments in actions and funding to gender equality in external action, for both ODA and non-ODA funds.
This calculation covers the following external financing instruments: NDICI, IPA III and CFSP.
38
Council Conclusions 11713/2/21 of 15 September 2021.
39
SWD(2020) 284 final of 25 November 2020.
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SDG #6 Clean Water and Sanitation
The world is currently off-track to meeting the targets of SDG 6. There were still two billion people in
the world lacking safely managed drinking water services in 2020, while almost half of the global
population – 3.6 billion people – lack safe sanitation. The EU continued to support access to water
and sanitation as well as sustainable and integrated water management. Achieving progress in this
area is also critical for many other sectors including biodiversity, climate change, disaster risk
reduction, nutrition, gender, health, and education.
In the area of water, sanitation and hygiene (WASH), the Council Conclusions on water in EU external
action
40
were adopted in November 2021. Transboundary water cooperation is vital to prevent
conflicts and ensure effective and sustainable use and management of shared resources. However,
cooperation in many water basins is inadequate to tackle the existing problems and challenges,
including weak legal and/or institutional frameworks, insufficient implementation of joint policies
and low capacity. Team Europe initiatives on water and food security and water management in the
Southern Neighbourhood, on transboundary water management for Africa, and on water, energy
and climate in Central Asia were developed in this context. In parallel to this dynamic, continued
support to the globalisation of the United Nations Economic Commission for Europe (UNECE) Water
Convention was put in place. 2021 was also the first implementation year of Climate Investor 2, a
programme that actively developed its pipeline with the private sector in the areas of water access in
rural areas, innovative sanitation solutions and non-revenue water. Significant progress has been
made in the adoption of a humanitarian-development-peace nexus approach, increasing coherence
across the WASH sectors.
EU actions directly associated to a range of SDGs contribute to the pursuit of SDG 6, given the
interlinkages between SDGs (see Figure 4).
40
Council Conclusions 14108/21 of 19 November 2021.
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Figure 4: SDG 6 – Interlinkages with other SDGs
SDG #10 Reduced Inequalities
To contribute to the achievement of SDG 10 and to fight inequalities by building inclusive and
sustainable societies, the European Commission continued to put inequalities at the heart of the EU’s
international cooperation and developed specific tools to mainstream inequality-reduction as a
cross-cutting objective of all interventions. In 2021, while inequality-reduction was mainstreamed
across all interventions, the EU continued to support specific policy measures targeting people living
in the poorest and most vulnerable situations. These interventions focused on sectors considered to
have significant impact in reducing inequalities across different dimensions in partner countries, and
built on the work the EU is carrying forward across all priorities. This year the Commission published
the reference document
Addressing income inequalities through development cooperation
41
to
provide guidance and support to Commission services to mainstream inequalities-reduction in our
cooperation with partner countries. The reference document has so far contributed to the successful
integration of inequalities in regional and country MIPs. The Commission also began developing an
innovative Inequality Marker to fully track our efforts to fight inequalities, creating a sound reporting
and benchmarking system on the contribution of EU development policy to the fight against
inequalities.
41
European Commission, Directorate-General for International Partnerships,
Addressing income inequalities
through development cooperation. Volume 1, Concepts and definitions,
Publications Office of the European
Union, 2021,
https://data.europa.eu/doi/10.2841/313004
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EU actions to reduce inequalities are often directly associated to the pursuit of a range of SDGs, given
the interlinkages between these SDGs (see Figure 5). Reducing inequalities depends on progress in a
broader range of SDGs, and in turn has a clear impact on many of the other SDGs.
Figure 5: SDG 10 – Interlinkages with other SDGs
The human rights-based approach (HRBA) is a working method to reach people in vulnerable
situations and to leave no one behind. In June 2021 the Commission adopted the staff working
document ‘Applying the Human Rights Based Approach to international partnerships: An updated
Toolbox for placing rights-holders at the centre of EU’s Neighbourhood, Development and
International Cooperation’
42
. The toolbox and its virtual version guide the development of
interventions step by step and provides a multitude of tools, resources and examples.
These tools are being translated into concrete interventions, the result of strong partnerships and
synergies with like-minded Member States. The EU and its Members States are designing Team
Europe ‘Equality Flagship’ initiatives in partner countries where inequality is a significant challenge
and a political priority. These initiatives will be transformational and high-profile contributions to
reducing inequality and promoting good governance in partner countries. In March 2021, the
European Commission and AFD
announced
the Extension of the EU-AFD Research Facility on
Inequalities to support the implementation of research results in pilot public policies to reduce
inequalities in four middle-income countries: South Africa, Mexico, Colombia and Indonesia.
42
SWD(2021) 179 final of 30 June 2021.
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Selected results 2018-2021
43
64 424 000
one-year-olds were fully immunised with EU support.
30 674 000
women of reproductive age had access to modern contraception methods with EU
support.
38 072 000
students enrolled in primary education with EU support.
8 259 000
students enrolled in secondary education with EU support.
17 093 000
individuals had access to improved drinking water source and/or sanitation facility with
EU support.
16 919 000
people benefitting from EU-funded interventions to counter sexual and gender-based
violence.
Source: EU Results Framework indicators
44
Students from 84 countries around the world have been enrolled in primary and secondary
education with EU support. A large share of students received support via the Global
Education Partnership, which is co-funded by the EU.
The largest number of individuals with access to improved drinking water source and/or
sanitation facility was reached in Sub-Saharan Africa (6.2 million), followed by North Africa
(4.8 million) and South & Central Asia (2.2 million). The results are based on the people with
access to newly built or rehabilitated water points and to newly constructed, rehabilitated or
improved sanitation facilities with a view to eliminating open defecation in communities. In
Afghanistan, 680 000 persons from urban and rural areas had access to improved drinking
water.
People in 46 countries were reached by interventions to counter sexual and gender-based
violence. In Timor-Leste, the COVID-19 Emergency Response reached more than 59 000
persons (29 000 women and 30 000 men) through campaigns to prevent gender-based
violence and informing about referral services available to survivors of domestic violence.
Table 1: EU RF indicators disaggregated by sex
EU Results Framework indicator
Number of one-year-olds fully immunised
with EU support
Number of women of reproductive age
using modern contraception methods
with EU support
Number of students enrolled in education
with EU support: a) primary education
43
Total
64 424 000
30 674 000
38 072 000
women/girls
-
30 674 000
men/boys
-
-
19 048
000
Not
identified
-
-
1 291 000
17 733 000
2018-2021 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by INTPA and NEAR (ENI) that started between January 2014 and July
2020. The values reported for EU RF indicators are cumulative, including all results reported for these projects
since start of implementation.
44
Selected results from EU-funded interventions managed by NEAR (ENI) and INTPA. Further information on
scope and methodology in chapter 6.
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Number of students enrolled in education
with EU support: b) secondary education
Number of individuals with access to
improved drinking water source and/or
sanitation facility with EU support
Number of people benefitting from EU-
funded interventions to counter sexual
and gender-based violence
8 259 000
17 093 000
3 856 000
336 000
3 915 000
331 000
489 000
16 426 000
16 919 000
6 188 000
6 553 000
4 178 000
3.2.
Green Deal
Main achievements
In 2021, the European Commission continued to be at the forefront of international efforts to
promote sustainable and inclusive development, in line with the external dimension of the European
Green Deal launched in December 2019. Building on the transformative agenda of the Green Deal
strategy in 2021 the Commission has stepped up its work to address climate change, preserve
biodiversity and enhance the sustainability of food systems.
This proved to be all the more crucial as climate change, biodiversity loss, environment degradation
and food insecurity worsened and the Green Deal was confirmed as Europe’s blueprint for
implementing a sustainable recovery model to ‘build back better’. The strategy became even more
vital as the COVID-19 pandemic continued to challenge global economies and the Commission’s
efforts to enter a path of green, just and resilient post-pandemic recovery in 2021.
As these challenges require joint efforts and integrated responses at national, regional and global
level, the European Commission, through the ‘Team Europe’ approach, is joining forces with Member
States and other partners to foster a green and inclusive transition. Between 2021 and 2027, the EU
and its Member States, through a ‘Team Europe’ approach, will mobilise up to EUR 300 billion of
investments in digital, climate and energy, transport, health, education and research. It will do so in
the framework of its new Global Gateway strategy, launched in 2021, which is expected to bring a
major contribution to the green and digital transition. Fully aligned with the UN’s Agenda 2030 and
its SDGs, the Global Gateway strategy will help tackle the most pressing global challenges, from
fighting climate change, to improving health systems, and boosting competitiveness and security of
global supply chains. In the area of green and smart cities, the Commission is seeking to strengthen
linkages between EU cities and cities in partner countries including through initiatives such as the
Global Covenant of Mayors.
In 2021, the Commission continued to promote the transition towards sustainable agriculture and
nutrition and food security. The Sustainable Cocoa Initiative was advanced and eight thematic
roundtables of the Cocoa Talks on the sustainability of the value chain were successfully held. To
support sustainable agriculture the use of blended finance increased and several agri-blending
initiatives were put in place to support smallholders.
In relation to the EU Farm to Fork strategy, the Commission enhanced its awareness and capacity-
building activities in food sectors in partner countries (for example the AGRINFO and COLEACP
programmes) to support and facilitate their transition.
In September the EU pledged EUR 140 million to support CGIAR, the largest international network on
agricultural research for development, to support research in sustainable food systems to tackle
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hunger, preserve natural resources and improve livelihoods. In the context of the Global Network
against Food Crises, a new joint Food and Agriculture Organisation/ World Food programme
(FAO/WFP) initiative worth EUR 21 million to follow-up the activities of the Network with a new
focus on assessing the vulnerability of food systems at country level and related responses was
operationalised. In 2021, the EU also substantially contributed to the success of the UN Food Systems
and the Tokyo Nutrition for Growth (N4G) Summits.
In total, a Team Europe commitment amounting to EUR 4.3 billion was made, of which the EU
pledged EUR 2.5 billion, for 2021-2024 (EUR 1.4 billion for development and EUR 1.1 billion for
humanitarian aid) to address all forms of malnutrition in humanitarian and development settings.
2021 was also an important year for key steps made in tackling biodiversity loss through policy and
the mainstreaming of biodiversity across all interventions. The Biodiversity COP15 in Kunming (Part
1) adopted a Declaration in line with EU’s high ambition and position. For the NaturAfrica initiative,
the identification process started in six regional landscapes and in several African countries with the
aim of improving biodiversity conservation.
In parallel, the Commission adopted the deforestation regulation
45
, forest partnerships were
launched at COP26, and a EUR 1 billion contribution was made to the Global Forest Financing Pledge.
To honour the pledge made by President von der Leyen in January in support of Africa’s Great Green
Wall, the Commission has started the development of country programmes.
Furthermore, the EU continued to support access to water and sanitation, through the adoption of
the Council Conclusions on Water in EU external action
46
in the area of water, sanitation and hygiene
(WASH). To promote sustainable and integrated water management, Team Europe initiatives on
transboundary water management for Africa and on water, energy and climate in Central Asia were
developed, as transboundary water cooperation is vital to prevent conflicts and ensure effective and
sustainable use and management of shared resources. In parallel, continued support to the
globalisation of the UNECE Water Convention was put in place.
In 2021, the Commission also adopted important policy documents such as the Zero pollution action
plan
47
and the proposal for a revised waste shipment regulation
48
.
The EU is committed to pursuing its international cooperation on sustainable consumption and
production (SCP), including the circular economy. The EU has continued the implementation of
SWITCH to Green, EU’s flagship initiative on SCP and the circular economy, which includes the
SWITCH to Circular Economy Value Chains project and the regional SWITCH programmes in Asia,
Africa and the Mediterranean. In 2021, the EU also launched the global alliance on circular economy
and resource efficiency (GACERE) in collaboration with the United Nations Environment programme
(UNEP) and United Nations Industrial Development Organisation (UNIDO) that aims to boost
initiatives related to the circular economy transition, resource efficiency and SCP building on efforts
already deployed internationally.
45
46
COM(2021) 706 final of 17 November 2021.
Council Conclusions 14108/21 of 19 November 2021.
47
COM(2021) 400 final of 12 May 2021.
48
COM(2021) 709 final of 17 November 2021.
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Sustainable energy plays a key role in the external dimension of the Green Deal. The EU Partnership
Instrument contributed to progress towards the achievement of SDG 7 by promoting policy
cooperation especially with G20 partner countries, such as with India through the EU–India Clean
Energy and Climate Partnership project and China through the EU-China Energy Cooperation
Platform. Issues addressed included the development of renewable energy and necessary power
market reforms, support to energy efficiency, and support to the global just energy transition. By the
end of 2021, EU-supported sustainable energy activities in partner countries had contributed to the
establishment of new renewable energy generation capacity of 18 gigawatts (GW) and to more than
22 million people gaining access to sustainable energy and energy services improving their
livelihoods and boosting the socio-economic development of their communities. During 2021, EU
cooperation with the African Union Commission made a crucial contribution to the development of
the African Single Electricity Market proposal to establish an integrated continental electricity market
that can benefit people and economies across Africa.
The climate dimensions of adaptation and mitigation were effectively integrated in programming at
country and regional level for the period 2021-2027, including a EUR 400 million allocation
specifically dedicated to climate and resilience in the regional programme for Sub-Saharan Africa.
Specific actions contributing to the global green transition and to reducing methane emissions were
adopted in 2021 and in the context of COP26 the EU pledged EUR 100 million to the Adaptation Fund
(to be operationalised in 2022). In the course of 2021, the EU provided technical support for the
upgrade of 14 Nationally Determined Contributions (NDCs) in view of the first round of updates of
NDCs scheduled ahead of COP26 in collaboration with the NDC Partnership and the International
Renewable Energy Agency (IRENA). A new technical assistance facility at a total cost of EUR 11 million
was also set up to further assist partner countries in the implementation of their NDCs as well as
National Adaptation Plans (NAPs).
In the face of the increasingly apparent effects of climate change, the Commission adopted a new EU
strategy on adaptation to climate change in February 2021
49
. The new strategy has four principle
objectives to make adaptation smarter, swifter and more systemic, and to step up international
action on adaptation to climate change. To complement the EU’s Nationally Determined Contribution
under the Paris Agreement, the Commission drafted an EU Adaptation Communication which was
adopted by the Council and submitted to the UNFCCC in October 2021.
In 2021, the Commission adopted the new European Instrument for International Nuclear Safety
Cooperation (EINS) - a specific tool complementing the NDICI-Global Europe with a budget of EUR
300 million to promote nuclear safety worldwide. The completion of the last major project, the
Interim Storage Facility II for the nuclear fuel of the Chernobyl nuclear power plants, marked the
successful termination of international support to make Chernobyl environmentally safe again. All
facilities, including the new safe confinement covering the destroyed reactor number 4, have been
commissioned and officially handed over to Ukraine.
The urgent measures to secure the former uranium processing plant at Pridniprovskyi (450 km from
Kyiv, Ukraine) and to prevent uncontrolled access to contaminated areas have been successfully put
in place. EU-funded remediation works were launched in 2016 and will continue up to 2025.
49
https://ec.europa.eu/clima/eu-action/adaptation-climate-change/eu-adaptation-strategy_en
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The Environmental Remediation Account for Central Asia (ERA), an international fund largely funded
by the Commission, successfully completed remediation works on two uranium mining sites in
Kyrgyzstan. Works on the third and final contaminated site in Kyrgyzstan and on two other priority
sites in Uzbekistan have been now launched.
Achievements of EINS and the previous Instrument for Nuclear Safety Cooperation (INSC) in 2021
also include the outstanding commitment and the results obtained in three projects targeting three
different regions around the world – the Association of Southeast Asian Nations (ASEAN), the Gulf
Cooperation Council, and West Balkans - in the area of emergency preparedness and response,
through the establishment of complex software systems which can help emergency managers to
make decisions on public protection in case of a nuclear or radiological emergency.
In the area of humanitarian aid, the European Commission adopted a Communication on the EU’s
Humanitarian Action: new challenges, same principles
50
. The Communication includes the
Commission’s approach to addressing the humanitarian impacts of climate change and
environmental degradation and to reducing the environmental impact of EU-funded humanitarian
operations. In 2021, the Commission also dedicated EUR 75 million to disaster preparedness projects,
including supporting communities to prepare for the impacts of climate change, and the Commission
also aims to mainstream preparedness in all EU-funded humanitarian operations.
SDG #2 Zero Hunger
In 2021, the EU advanced the Sustainable Cocoa Initiative. Eight thematic roundtables of the Cocoa
Talks were held, gathering stakeholders from the cocoa sector, the EU, and representatives of Cote
d’Ivoire, Ghana, and Cameroon. Similar roundtables were organised in the three producing countries.
The Cocoa Talks were very successful at engaging with stakeholders on the sustainability of the cocoa
value chain including living incomes for farmers, standards, traceability in respect to child labour and
deforestation, regulation with the focus on due diligence, and sustainable production of cocoa.
The use of blended finance in EU support to agriculture has accelerated in the past three years and
several agri-blending initiatives are now in place to support smallholders. Further targeted support
promoting access to finance was provided through two key projects in African, Caribbean and Pacific
(ACP) countries: a EUR 16.6 million programme strengthening the capacity of informal sector
intermediaries, aggregators and government, and a EUR 7 million programme to support value-chain
specific quality and regulatory infrastructure.
The EU pledge of EUR 270 million made at the One Planet Summit in Paris (2017) in support of the
Development-Smart Innovation through Research in Agriculture (DeSIRA) initiative was entirely
contracted with about 80 interventions in Africa, Central and Latin America and Asia, forging strong
synergies with the Global Climate Change Alliance+ under the Landscape for the Future initiative. The
EU also pledged EUR 140 million in September 2021 to support CGIAR, the largest international
network of agricultural research for development, to support research in sustainable food systems
and to tackle hunger. The EU continued to develop its support to global Land Governance processes
seeking to promote more transparent and equitable land tenure systems and to support the
application of the Voluntary Guidelines on the Governance of Tenure. The EU supported the work
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under the G7 Famine Prevention and Humanitarian Crises Compact, including through targeted
support to food insecure countries.
The Global Network Against Food Crises, in which the EU is a leading actor, published the timely
Global Report on Food Crises
51
and its mid-year update together with other products. A commitment
taken in the previous year was operationalised in a new joint FAO/WFP programme worth EUR 21
million for the follow-up on activities of the Global Network with an innovative focus on assessing the
vulnerability of food systems at country level and related responses.
The EU and its Member States substantially contributed to the success of the UN Food Systems
Summit (FSS) and the Tokyo Nutrition for Growth (N4G) Summit. In partnership with FAO and Centre
de coopération internationale en recherche (CIRAD), the EU launched Food Systems Assessments in
over 50 countries worldwide that contribute to the follow-up to the FSS through national and
subnational analyses and dialogue by reinforcing multi-stakeholder collaboration. Commissioner
Jutta Urpilainen participated in the N4G Summit highlighting the essential role of nutrition for
healthy and productive lives, and especially for women and children. A Team Europe commitment
amounting to EUR 4.3 billion was made, of which the EU pledged EUR 2.5 billion for 2021-2024, to
address all forms of malnutrition in humanitarian and development settings.
The EU continued outreach activities with partners to engage in dialogue on the Farm to Fork
strategy on how it creates opportunities, not only in the EU, but also in third countries for making
food systems fair, healthy and environmentally friendly.
SDG #7 Affordable and Clean Energy
Sustainable energy is crucial to achieve the 2030 Agenda and Paris Agreement’s targets and has a key
role in the external dimension of the European Green Deal. In 2021, the Commission continued to
support actions in partner countries to increase sustainable energy access and decarbonise the
energy sector by spurring renewable energy generation, energy efficiency solutions, and promoting
the phasing out of polluting fuels.
Energy is among the EU’s shared priorities with Africa and a key area of the Africa-EU Partnership.
Based on the Council Conclusions on ‘Climate and Energy Diplomacy - Delivering on the external
dimension of the European Green Deal’
52
, the Communication ‘Towards a comprehensive strategy
with Africa’
53
and the second AU-EU Ministerial meeting, the Africa-EU Green Energy initiative
(AEGEI) was developed in 2021, as part of the multi-sectoral African Investment Package and recently
announced Global Gateway strategy. AEGEI will embody the geopolitical Commission’s work in Africa
in the energy sector.
In 2021, the EU supported African Union institutions in launching the Continental Transmission
Network Masterplan for Africa and the African Single Electricity Market, a crucial step to enhance
cooperation and enable the use of Africa’s abundant renewable energy resources, while spurring
trade and investment exchanges and closing gaps on energy infrastructure between regions and
countries.
51
52
Global Report on Food Crises - 2021 | World Food Programme (wfp.org)
Council Conclusions 5263/21 of 25 January 2021.
53
JOIN(2020) 4 final of 9 March 2020.
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With the ambition of achieving progress on energy efficiency, in line with SDG 7, in 2021 the
programme Demand side management, Social Infrastructures, Renewables and Energy Efficiency
(DESIREE) with the EIB started its implementation phase. This programme foresees (among other
focus areas) the development of solutions for the electrification of health facilities, a crucial aspect in
times of global pandemic. In addition, in line with the ambition to support clean cooking, two new
contracts were signed, with the Danish Investment Fund and with the Netherlands Enterprise Agency
(RVO), to support investments and strengthen the entrepreneurial ecosystem in the sector.
Through the strategic partnerships for the Implementation of the Paris Agreement (SPIPA) project,
the EU continued to engage G20 countries on topics related to energy transition such as energy
efficiency, energy technologies, energy poverty and just transition, with approximately 150 events
delivered with about 15 000 participants, including approximately 3 000 officials targeted. The
strategic direction for SPIPA was extended to reflect the emerging European Green Deal/Green
Recovery narrative in the wake of the COVID-19 pandemic. The Transferability and Convertibility
Facility with Proparco was also launched and additional funds were provided to the Kenya ElectriFI
Country Windows II and to Climate Investor One to facilitate the integration of renewable energy
into the grid.
At the same time, two more actions started to promote the EU approach on energy security based on
sustainable energy and energy savings. The first one ‘EU leading the global energy transition’
supports EU leadership of the global energy transition. Whereas the second one ‘Towards a liquid,
flexible and transparent global Liquefied Natural Gas (LNG) market’ aims to contribute to the EU’s
Energy Union objectives, in particular on secure, sustainable, diverse and competitive gas supplies by
supporting the establishment of a liquid, flexible and transparent global LNG market. Finally, in the
frame of the annual action plan for Planet (NDICI-Global Europe Global Challenges), two specific
actions were adopted to strengthen international diplomacy and dialogues, to provide in-depth
analysis and to set up global knowledge, while supporting the just energy transition.
Throughout 2021, the Commission also developed minimum environmental requirements
54
for its
humanitarian partners as part of its approach to reducing the environmental impact of humanitarian
aid operations. The requirements prioritise, among other things, access to clean energy in
humanitarian programmes.
SDG #11 Sustainable Cities and Communities
Urbanisation and the role of cities in the economy are increasingly shaping development challenges
and opportunities in developing countries, so much so that local authorities are increasingly
recognised as key actors in achieving most of the SDGs. With cities globally contributing 80 % of GDP,
70 % of global energy consumption and 70 % of global carbon emissions and nearly one billion
people living in slums, achieving the SDG 11 targets represents a major challenge.
In 2021, the programming under the new multiannual financial framework (2021-2027) saw a
significant increase in countries where EU support will target urban development with a view to
advance the achievement of wider strategic objectives such as green transition and achievement of
the SDGs. The Commission has put in place tools for supporting urban development through various
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channels, including through blending and guarantees for the mobilisation of finance and support to
investments in sustainable urban development.
Extensive informal settlements continue to be a critical factor for persisting poverty and exclusion.
Through the Participatory Slum Upgrading programme (PSUP), the Commission in a joint effort with
the ACP countries and the UN addresses the growth of slum dwellers and the challenges they face.
So far, the programme has reached out to 40 ACP countries and 160 cities.
The 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 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 is the world’s largest movement supporting cities
in their work on energy and climate change, and has now been extended to Western Balkans and
Turkey, as well as a new phase with the Eastern Partnership and in the Southern Neighbourhood,
where a specific regional call for the proposal ‘Climate for Cities’ was launched in 2021. To date, the
Global Covenant brings together more than 11 000 cities in 140 countries.
Urbanisation is one of the main drivers of disaster risk. The Commission is strengthening disaster
preparedness in urban contexts with its humanitarian partners, as outlined in the
Disaster
Preparedness Guidance Note
55
published in 2021. Urban preparedness is one of the 2021-2024
funding priorities for the Disaster Preparedness Budget Line.
SDG #12 Responsible Consumption and Production
The EU is committed to pursuing its international cooperation on SCP, including the circular
economy, as an essential contribution to SDG 12. 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. Given the interlinkages between SDGs,
a broad range of EU actions directly associated to the pursuit of several SDGs also contribute towards
achieving responsible consumption and production (see Figure 6).
55
European Commission, Directorate-General for European Civil Protection and Humanitarian Aid Operations,
DG ECHO Guidance Note: Disaster Preparedness,
2021,
https://civil-protection-humanitarian-
aid.ec.europa.eu/system/files/2022-02/dg_echo_guidance_note_-_disaster_preparedness_en.pdf
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Figure 6: SDG 12 – Interlinkages with other SDGs
At global level, the objective is to engage at multilateral level to promote policies towards the use of
standards, a level-playing field for the private sector and the provision of financial and technical
assistance. The EU has continued the implementation of SWITCH to Green, the EU’s flagship initiative
on SCP and the circular economy, which includes the SWITCH to Circular Economy Value Chains
project and the regional SWITCH programmes in Asia, Africa and the Mediterranean. Support has
been provided to initiatives like the Partnership for Action on the Green Economy (PAGE), the 10-
Year Framework of Programmes on sustainable consumption and production (10YFP) and the One
Planet Network, as well as the Green Economy Coalition (GEC)
In 2021, the EU launched the Global Alliance on Circular Economy and Resource Efficiency (GACERE)
at the margins of the fifth meeting of the United Nations Environment Assembly (first session), in
collaboration with UNEP and UNIDO. The Alliance aims to boost initiatives related to the circular
economy transition, resource efficiency and sustainable consumption and production, building on
efforts deployed internationally. In addition, the EU, as a strategic partner, formally initiated the
application process to join the African Circular Economy Alliance and the Circular Economy Coalition
of Latin America and the Caribbean.
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, together with the European Consensus, the 2030 Agenda and the Paris Agreement. The
Green Deal emphasises the EU’s major role as a global leader in tackling climate change and
environmental challenges and represents the EU’s new growth strategy.
Reflecting this ambition, the EU has set the ambitious spending target of 30 % of the NDICI-Global
Europe financial envelope in the period 2021-2027 to contribute to climate change objectives. In
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addition, the Commission President committed to a further EUR 4 billion in international climate
change finance in the 2021 State of the Union speech
56
. The Commission is integrating climate
change and the environment into all its policies and interventions. It continues to support the
upgrade and implementation of Nationally Determined Contributions (NDCs) and National
Adaptation Plans, as well as the Sendai Framework for Disaster Risk Reduction (SFDRR) 2015-2030.
In 2021, the Commission has allocated EUR 70.4 million in support of international climate
governance, sustainable energy transition, the global pledge on reducing methane emissions,
phasing out of coal and the just transition as well other environmental actions. Direct support was
provided to 60 countries for the design and implementation of their NDCs that includes support in
the formulation of EU funded programmes contributing to NDC objectives.
The Commission was also an early supporter of the African-led Great Green Wall initiative.
Specifically, the Regreening Africa initiative has enabled the restoration of more than 600 000
hectares of land in the eight participating countries, contributing to climate action. Voluntary
Partnership Agreements (VPA) and forest partnerships, the new and holistic EU approach to support
sustainable forest management in partner countries, also contribute to the objectives of the Green
Deal, particularly climate change, biodiversity and circular economy.
The Commission together with EU Member States engaged to encourage ‘Sustainable Cocoa’,
pooling efforts for the sustainable transformation of the cocoa value chain, support agri-ecological
practices and agroforestry, as well as forest protection and rehabilitation and thus contribute to
address climate change and environmental issues.
The Commission is also supporting specific Green Deal dialogues and partnerships, with climate
action at their core, at regional level in the Western Balkans (Green Agenda for the Western Balkans
and its implementing regional project) and at country level in Turkey, Morocco and Ukraine.
Through the strategic partnerships for the Implementation of the Paris Agreement (SPIPA) project,
the EU continued to engage G20 countries (Russia, Canada, Australia, South Africa, etc.) on topics
related to climate change, with approximately 150 events delivered with about 15 000 participants
including approximately 3 000 officials targeted. The strategic direction for SPIPA was extended to
reflect the emerging European Green Deal/Green Recovery narrative in the wake of the COVID-19
pandemic. Given the EU’s positioning as a champion in this regard, SPIPA was considered a suitable
vehicle for introducing European Green Deal approaches in climate-related activities and discourses
with partner countries.
The new Global Gateway launched in 2021 is an important tool to promote digital technologies, with
a focus on climate, infrastructure and energy. By investing in both mitigation and climate resilience,
as well as in clean energy, it supports partner countries’ green transformation on the way to
achieving the SDGs and commitments of the Paris Agreement.
The Commission made a strong contribution to the success of the EU participation in COP26,
including through EU support to the Just Transition Partnership with South Africa, a EUR 100 million
pledge to the Adaptation Fund and a EUR 1 billion contribution to the Global Forest Financial pledge.
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In 2021 in the Communication on the EU’s Humanitarian Action: new challenges, same principles
57
,
the Commission highlighted the impact of climate change on humanitarian needs and set out how
the Commission can further adapt its humanitarian response to the growing and shifting needs
engendered by climate change and environmental crises in many parts of the world. The Commission
factors climate and environmental risk considerations into humanitarian operations. To this end, one
of the priorities of the dedicated budget line for preparedness in the EU humanitarian aid budget
focuses on climate and environmental resilience for the period 2021-2024. In 2021, the Commission
dedicated EUR 75 million to disaster preparedness activities, including to support communities to
prepare for the impacts of climate change, and aimed to mainstream disaster preparedness across
EU funded humanitarian actions.
Throughout 2021, the Commission also developed minimum environmental requirements
58
for its
humanitarian partners as part of its approach to reducing the environmental footprint of
humanitarian aid. The requirements will push humanitarian organisations to reduce their carbon
emissions by providing renewable energy and reducing deforestation in their programmes.
SDG #14 Life below Water
Global progress in addressing major threats, including pollution and eutrophication, overfishing and
destruction of habitats, as well as the impacts of climate change, has been slow and most SDG 14
targets may not be reached by 2030. The EU continues to work on capacity-building and spur local
and regional actions on effective governance and the protection and sustainable use of marine
resources. The role of the EU external action in support of SDG 14 is growing. The EU promotes an
integrated approach to effectively address the drivers of ocean degradation while linking food
security, nutrition and livelihoods with natural resources preservation.
The additional financing support to the FISH4ACP programme will contribute to unlock the potential
of sustainable fisheries and aquaculture in Africa, the Caribbean and the Pacific working with twelve
value chains in twelve ACP countries to maximise economic returns and social benefits, while
minimising detrimental effects on natural habitats and aquatic resources.
In the Southern Neighbourhood, regional programmes contributed to the implementation of the
Barcelona Convention by acting either on the causes of biodiversity loss or on the preservation of
endangered ecosystems. For example, the IMAP-MPA project (Towards achieving the Good
Environmental Status of the Mediterranean Sea and coast through an ecologically representative and
efficiently managed and monitored Marine Protected Area) has strengthened and further developed
the Marine Protected Areas (MPA) network. The WES project (Water and Environment Support) has
provided technical assistance and training on depollution of the Mediterranean Sea, on plastics in
particular.
SDG #15 Life on Land
SDG 15 received particular attention ahead of 2021 via the EU Biodiversity strategy 2030 and the
Farm-to-Fork strategy. In 2021, the Commission adopted a new EU Forest strategy for 2030,
reaffirming the commitment to deliver on the objectives set out in the 2019 Communication to
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Protect and Restore the World’s Forests
59
, including by working in close partnership with global
partners on forest protection, restoration and sustainable forest management. Further to this, the
Commission also adopted a proposal for a regulation to curb EU-driven deforestation and forest
degradation linked to six commodities
60
.
Important international summits took place in 2021, highlighting the importance of natural
resources, ecosystems and biodiversity for combatting poverty and strengthening livelihoods
including COP26 of the United Nations Framework Convention on Climate Change (UNFCCC), and UN
Food Systems Summit. At the UNFCCC COP26, the Commission pledged EUR 1 billion to support the
critical role of the world’s forests in combatting climate change. EUR 250 million of this will be
specifically for the Congo Basin. It further stated its intention to take forward a comprehensive,
holistic and integrated Forest Partnership approach in addressing the forest sector with partners. The
EU furthermore participated in the 15th Conference of the Parties of the Convention on Biological
Diversity (CBD COP15, part 1) and engaged to reach an ambitious agreement at the COP15 part 2,
due to take place in 2022.
To implement its ambitions, the Commission has mainstreamed biodiversity across all its
interventions and has developed specific actions such as the NaturAfrica initiative designed to
protect biodiversity while creating economic opportunities and better livelihoods for local
populations. The formulation of the NaturAfrica initiative started in 2021 in six regional landscapes
and in several countries (Togo, Benin, Cameroon, DRC, Burundi, and Congo). Through the ‘Landscape
Approach’, NaturAfrica aims to improve the livelihood of 65 million people, sequestering up to 21
billion tons of carbon, stabilising 3 million km² of land and ensuring water security. In the Sahel,
continuous EU actions on land restoration and alternative livelihoods development support the
African-led Great Green Wall initiative. Commission President von der Leyen pledged EUR 700
million/year to this initiative at the One Planet Summit in January 2021. In total, more than 150 000
hectares of land were restored in 2021 under the Regreening Africa programme, notably through
agroforestry. In the Pacific Islands region, the multi-donor Kiwa Initiative supports the use of nature-
based solutions for climate resilience by preserving biodiversity. The first project launched in 2021
and aims to establish an agroecological farms network.
The Commission also further pursued its work on Forest Law Enforcement, Governance and Trade
(FLEGT), notably via Voluntary Partnership Agreements (VPA), which have helped improve
governance and regulatory frameworks leading to greater transparency and accountability, as well as
sustainable forest management. In addition, the development of forest partnerships, the new and
holistic EU approach to support sustainable forest management in partner countries, started with ten
countries.
To consolidate this work in the Republic of Congo (Brazzaville), the EU, its Member States and the EIB
are engaging in a TEI Partnership for forests to complement the VPA and address forest bioeconomy
to foster job creation, promote zero-deforestation agriculture and conserve forest biodiversity. The
EU-Honduras VPA was signed and ratified in 2021, thus making Honduras the first country to achieve
this in the Americas. In Honduras, the EU contributed to introduce Climate-Smart Agriculture
techniques based on agroecological approaches in key value chains linked to the country agricultural
59
COM(2019) 352 final of 23 July 2019.
60
COM(2021) 706 final of 17 November 2021.
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and timber sectors. The action will improve the livelihoods of smallholder farmers through micro-
credits and training in sustainable agroforestry techniques, while curtailing illegal timber activities
thus contributing to conserving forest biodiversity, increasing carbon sequestration, enhancing food
security and reducing climate-driven migration.
Selected results 2018-2021
28 200 000
food-insecure people received EU assistance.
18 800 000
women of reproductive age, adolescent girls and children under five were reached by
nutrition-related interventions supported by the EU.
21 057 000
smallholders were reached with EU-supported interventions aimed at increasing their
sustainable production, access to markets and/or security of land.
2 701 000
ha of agricultural and pastoral ecosystems were managed by sustainable land
management practices with EU support.
Source: EU Results Framework indicators
61
Food insecure people from 54 countries have received EU assistance, which is an increase of
12 countries compared to last year. Assistance includes, for example, support to improve
subsistence farming practices, provision of social transfers (in cash or in kind) to poor or
vulnerable individuals aimed at reducing their deficits in food consumption or interventions
that aim at improving nutritional adequacy of food intake.
In Nigeria, the EU Support to Food Security and Resilience reached more than 100 000
members of farming households who accessed reserves for grain and seeds for the new
planting season.
Table 2: EU RF indicators disaggregated by sex
EU Results Framework indicators
Number of food-insecure people
receiving EU assistance
Number of women of reproductive age,
adolescent girls and children under five
reached by nutrition-related
interventions supported by the EU
Number of smallholders reached with
EU-supported interventions aimed to
increase their sustainable production,
access to markets and/or security of
land
Total
28 200
000
18 800
000
women/girls
6 520 000
men/boys
5 947 000
Not
identified
15 703 000
2 411 000
1 352 000
15 033 000
21 057
000
2 502 000
2 478 000
16 077 000
61
Collecting results from EU-funded interventions managed by NEAR (ENI) and INTPA. Further information on
scope and methodology in chapter 6.
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29 765 000
individuals accessing electricity with EU support through new or improved access.
31 000
megawatts (MW) of renewable energy generation capacity installed with EU support.
234
countries and cities developed climate change and/or disaster risk reduction strategies with EU
support.
125
countries and cities implemented climate change and/or disaster risk reduction strategies with
EU support.
24 000 MSMEs
applied sustainable consumption practices with EU support.
95 871 000
tonnes of CO
2
e greenhouse gas emissions avoided with EU support.
Source: EU Results Framework indicators
62
The value for renewable energy generation capacity installed with EU support increased by
72 % since last year (from 18 000 megawatts for reporting year 2018-2020 to 31 000
megawatts for reporting year 2018-2021). The value for CO
2
greenhouse gas emissions
avoided with EU support increased by 67 % since last year (from 57 356 000 tonnes CO
2
eq
for reporting year 2018-2020 to 95 871 000 tonnes CO
2
eq for reporting year 2018-2021).
These large increases reflect improved reporting due to the systematic inclusion of all
blending operations in the latest results data collection exercises.
Of the 234 countries and cities that developed climate change and/or disaster risk strategies,
67 were countries and 167 were cities.
The Municipal Project Support Facility assists local authorities in the Eastern Neighbourhood
Partnership (ENP) partner countries to achieve the 20 % energy savings target by 2020 by
helping them become more energy efficient, ensuring that their energy consumption is more
sustainable and thus reducing greenhouse gas emissions. So far, the measures implemented
with project support have contributed to avoiding 231 000 tonnes of greenhouse gas
emissions per year, mainly in Armenia, but also in Georgia, Moldova and Ukraine.
1 143
megawatts of renewable energy generation capacity installed with EU support.
37
disaster risk reduction public policies: a) developed, and/or b) under implementation with EU
support.
1 028 248
tonnes of CO
2
e greenhouse gas emissions avoided with EU support.
Source: IPA Performance Framework indicators
63
543 000
km
2
marine areas were under protection with EU support.
75 806 000
ha of terrestrial and freshwater ecosystems were under protection with EU support.
68 975 000
ha of terrestrial and freshwater ecosystems were under sustainable management with
EU support.
Source: EU Results Framework indicators
64
62
Collecting results from EU-funded interventions managed by NEAR (ENI) and INTPA. Further information on
scope and methodology in chapter 6.
63
Selected results from EU-funded interventions managed by NEAR (Instrument for Pre-accession (IPA)).
Further information on scope and methodology in chapter 6.
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In Latin America, 32 million hectares of terrestrial and freshwater ecosystems were under
protection, and 13 million hectares of terrestrial and freshwater ecosystems were managed
to ensure biological diversity and to preserve natural heritage with EU support. In Bolivia, for
example, the Budget Support ‘Integrated water and natural resource management’
contributed to 18 000 hectares of forest with forest management plans.
In the Caribbean, a multi-country project for civil society and small enterprises to conserve
marine and coastal biodiversity has identified priority marine areas in Antigua and Barbuda,
Saint Lucia, Haiti, Jamaica, St. Vincent and Grenadines and Grenada. Under this intervention,
the EU has provided support for conservation of marine protected areas of 2 800 km
2
.
3.3.
Digitalisation, Science, Technology and Innovation
Main achievements
Digital Global Gateway
The release of the Global Gateway Joint Communication
65
marked an important milestone for
advancing the Commission’s global approach on digital connectivity. In 2021, the groundwork for
starting the Digital Global Gateway was laid through an informal Commission inter-service group with
the aim of defining the EU’s global policy objectives on global digital connectivity as well as assessing
appropriate inter-service coordination mechanisms that would allow for conception and
implementation. This work was subsequently reflected in the Global Gateway Joint Communication
and will be closely linked with the Global Gateway’s governance structure. Moreover, Commission
services together with EU Delegations successfully anchored digital connectivity in regional and
country MIPs and prepared a preliminary list of global digital connectivity flagships. To foster a ‘Team
Europe’ approach, a working group on digital connectivity has been established under the global
Digital for Development (D4D) Hub gathering Member States, agencies, development finance
institutions and the private sector. The working group will contribute to the design and
implementation of the global masterplan.
Operationalisation of the Digital for Development (D4D) Hub and Launch LAC Branch
Over the last two year the Commission and EU Member States have joined forces to establish a
platform for Team Europe coordination and multistakeholder dialogue aimed at strengthening the
EU global role in support of a human-centric model of digital transformation. This is the D4D Hub, a
strategic tool that was launched at high-level by President Von Der Leyen in December 2020. The
D4D Hub has a global scope and operates through its regional branches to establish digital
partnerships and boost joint investments with EU partner countries with interventions at country,
regional and global level. Under the German Presidency in 2020, the first regional branch to be
established was the Africa branch, followed by the Latin America and Caribbean (LAC) Branch
launched on 14 December 2021 under the Slovenian Presidency. The launch of the LAC Branch
concludes an intense year of successes for EU-LAC cooperation on digital matters. Among the
highlights the progress towards the establishment of the EU-LAC Digital Alliance, in line with the
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scope and methodology in chapter 6.
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recommendations of the EU-LAC Ministerial Meeting of 14 December 2020, aims to foster a strong
human centred approach to digital transformation and bring the EU and LAC digital markets closer
together. In June 2021 the EU’s BELLA programme celebrated the landing of the submarine fibre-
optic cable between the EU and LAC, which provides secure and high-capacity data connections for
more than 12 000 educational and research institutions from both regions.
Achievements of the rapid digital COVID-19 response
COVID-19 has had a far-reaching impact on the global economy, health, and social changes –
especially in developing countries. In response to the pandemic, the Commission has adopted a
‘Team Europe’ approach in supporting its partner countries.
With the aim of providing creative solutions, nine projects were selected for implementation out of 1
000 proposals received from over 300 partners from Africa, Latin America, Asia and Europe. These
out-of-the-box solutions make up the #SmartDevelopmentFund, a Team Europe initiative
implemented jointly by the Commission with the German Federal Ministry for Economic Cooperation
and Development (BMZ) and the German Development Cooperation Agency (GIZ). The overall
objective of the #SmartDevelopmentFund is to develop, scale-up and promote innovative digital
solutions, addressing the effects of the COVID-19 pandemic.
With a total of EUR 20 million (EU contribution EUR 10 million) nine projects are being implemented
across the world, scaling impact, and helping hundreds of thousands of people leverage the digital
transition to deal with the current health crisis. The initiatives include: 150 000 listeners have been
provided with factual and up to date information on the pandemic through the CallvsCorona hotline,
helping to fight fake news and raise awareness; and 200 000 youth were engaged in challenges,
delivering 9 000 prototypes on Yoma, a platform that helps equip youth with digital skills, allowing
them to also build a digital CV and link them with appropriate job opportunities.
Set up of Technical Assistance facilities
In 2021, technical assistance support facilities were setup in different domains covering Space, Earth
Observation, Science, Technology and Innovation (STI) and Digital (governance, economy,
infrastructures, and policy). A previous smaller facility was completely used up following strong
demand from EU Delegations. The facilities launched in 2021 currently pool around 25 experts across
the different domains.
Preparatory steps for a future Knowledge Hub Digital (Part I) where made in 2021, committing an
amount of EUR 23.5 million for the first phase of a knowledge hub to be established in 2022.
Responsible Digitalisation: Policy and regulatory frameworks
Digital policy action and guidance was provided for the national programming exercise. At regional
level, a framework for digital interventions and policy was prepared, in particular for the Sub-Saharan
Africa regional MIP.
In 2021, important steps were taken to support the creation and roll out of adequate regulatory
frameworks on digital and data. An important part of this was the start of the operationalisation of
the EU-AU Data Flagship, a major inter-regional programme aiming to strengthen the African data
economy and data society and linking it with the European data market. The programme is currently
being developed jointly by the EU and AU, and a range of EU Member States to build up Team
Europe initiatives. As well as actions focusing on data infrastructure, data professionals and data
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innovation, the Flagship will support the development and implementation of data regulatory
frameworks to build a fair and inclusive African data economy.
Initial exchanges were held with some stakeholders with experience in telecom regulation in Africa
to assess possible future actions and to set the basis for ongoing discussions.
The PRIDA project initiated Sector Digital strategies at the African Commission level on education,
health and agriculture. Commission services were also associated with GIZ (and Smart Africa)
activities on the Continental Data policy and the continental e-ID interoperability framework.
Efforts were made in 2021 to better leverage digital know-how, connections and resources based in
the EU delegations (EUD) in Geneva, New York and Addis Ababa. A post was created at the EUD in
Geneva to work on digital issues. These efforts have set a tangible basis for better information
gathering and exchange, and better outreach to various stakeholders, EU Member States and partner
countries.
With regards to digital at the multilateral level, Internet Governance and the EU’s open internet
policy some significant steps have been taken. The Commission committed EUR 50 million under the
Global Challenges MIP in 2021. External expertise was recruited to advise on strategic options with
regards to ‘multilateralism and digital’, and work has progressed towards the preparation of an
annual action plan in 2022. A side event was held during the Paris Peace Forum in 2021 on the topic
of ‘Open Internet’ with the participation of Commissioner Urpilainen.
The Commission and the EEAS launched the project ‘Promotion and Development of the Open
Internet in Africa’. The project’s objective is to reach and influence stakeholders across selected
African countries to ensure the continued openness of the Internet.
The Commission has engaged in exploratory discussions with Smart Africa in 2021, envisaging
possible cooperation / partnership in 2022 and onwards.
Digital skills and entrepreneurship
In 2021 we have contributed to the development of the ‘Theory of Change‘
66
for Education, defining
the key enablers and priorities to achieve inclusive and quality education, which has allowed for the
integration of digital literacy and skills, as well as of digital learning in Commission services’ approach
to education. Additional support was also provided to define relevant education indicators in this
regard. Furthermore, support has been provided to national programming to ensure the inclusion of
digital literacy and skills in the MIPs. Under the PRIDA project with the African Union Commission,
Commission services participated in the Digital Education taskforce, contributing to the analysis and
preparation for the continental Digital Education strategy, which will be further developed in 2022.
Additional human resources were mobilised to work on digital education as of 2022, including on the
topics of digital literacy and skills.
E-services, including e-governance
Through technical assistance the EUDs were supported to reflect e-governance in the programming
both in national and regional programmes as well as in annual action plans (AAPs)/Action Documents
2021/2022 and continued support for capacity building on the topic in EUDs was provided.
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Impact evaluation centre - Regional Policy - European Commission (europa.eu)
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The creation of the digital governance working group under the D4D Hub African Branch, that has
among others a strong focus on e-governance, will contribute to identifying and implementing e-
governance projects in Sub-Saharan Africa.
In late 2021, EUR 10 million was committed to support digitalisation efforts in the Horn of Africa
(HoA) through the HoA Initiative. The HoA Initiative has two main pillars: GovStack and cyber
security. The funding will help governments embark on digital transformation. The GovStack model
aims to build a common understanding and technical practice on fundamental reusable and
interoperable digital components, or digital building blocks, through which governments can easily
create or modify their digital platforms, services, and applications while also simplifying cost, time,
and resource requirements.
At the African continental level, contributions were made to developing the AU Interoperability
Framework for Digital ID that aims at ensuring interoperability between AU Member States digital
identities.
Cyber Security
The Commission has also supported cyber capacity building, especially in African States, enabling a
more efficient response to cyber threats. Cooperation has increased with EU Member States, across
Commission services, the EEAS and EU CyberNet as well as global partners such as the Global Forum
on Cyber Expertise (GFCE). Finally, the creation and implementation of the Cyber Thematic Working
Group, within the Africa branch of the D4D Hub, has allowed the Commission and Member States
including Luxembourg, Germany and France to conduct a mapping of existing projects, which will
serve as support for the establishment for future projects and frameworks.
Space and Earth Observation
2021 saw increased visibility of the EU space programme and its uptake as a key tool for the green
transition in Latin America and the Caribbean, Asia and the Pacific and Africa. Three technical
assistance facilities (TAF) dedicated to space and Earth observation have been launched to support
Commission services and Delegations to strengthen the use of space technologies in support of
partner countries and EU policies. At the end of 2021 one assignment has been launched to identify
possible cooperation avenues on space and Earth observation data with the Pacific region and the
main Pacific regional organisations while the terms of reference for another three assignments are
being finalised: one to provide actionable recommendations on the establishment of a Copernicus
regional data centre for emergency management in Panama; one to outline the possible contribution
of Earth observation and space technologies to two Team Europe initiatives on sustainable forest
management in the Gran Chaco region and sustainable fisheries in the Patagonian Sea; and one to
identify and design a long-term strategy for space and Earth observation between Africa and the EU
beyond 2025.
Moreover, in 2021, confirming the outcomes of the EU-LAC ministerial of December 2020, the
decision was taken to finance the establishment of two Copernicus regional data centres in Central
(Panama) and South America (Chile). There have been developments also in the Philippines, where
works for a Copernicus mirror site for improved climate change mitigation and adaptation, reporting
on forests, disaster risk reduction and marine spatial planning, have advanced and should lead to the
launch of the mirror site in 2022.
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2021 has also been an important year in terms of planning of future actions in the field of space and
Earth observation. Missions have been identified for a long-term Earth observation strategy in Africa
and talks with EU delegations and partner countries as well as the AU, have started. GMES&Africa,
the biggest programme for cooperation on Earth observation between Africa and the EU has come to
a successful conclusion of its first phase and the second phase will be launched soon. The African
Union and the European Union committed on several occasions in 2021 (e.g., Kigali declaration,
Lisbon Manifesto, and the GMES&Africa forum etc.), to strengthen cooperation on Earth observation
and space.
The BELLA project supports improved connectivity and exchange of data (including R&I and
Copernicus) between EU and LAC. 2021 saw the operationalisation of the cable connection between
the EU and Brazil as well as the expansion of the terrestrial network in Latin America that will reach
Argentina, Chile, Ecuador, Panama and other countries in 2022.
Science, Technology and Innovation
2021 marked an overhaul of actions in science, technology and innovation (STI) to improve
coordination, strategic orientation, and policy formulation in STI for development. Internal
coordination is now ensured through the newly created Research Coordination Group involving
Commission personnel working on geographical and thematic issues. Coordination across
Commission services is implemented through the STI4Dev Interservice Working Group (IWG).
In the framework of the STI4Dev IWG, an
STI for Development strategy
is being developed to
support the implementation of MIPs and RIPs and help implement the objectives of key policies and
initiatives decided over the year, including Europe's new global approach to cooperation in research
and innovation and the Global Gateway strategy’s priority on Education and research.
2021 also saw the launch of new activities on the ground. The
ACP-EU programme to strengthen
research and innovation capacity in ACP countries
(EUR 60 million) is the most recent research and
innovation (R&I) programme of the ACP Group of States, funded through the 11th European
Development Fund. It targets R&I public and private stakeholders across ACP countries and regions
with a comprehensive package of opportunities. The programme aims at reinforcing national and
regional R&I eco-systems through three interlinked components: the R&I Policy Support Facility; the
ACP Innovation Fund; and the ACP R&I Hub. The first activities under the ACP Innovation Fund and
the Policy Support Facility were launched in 2021. A new pilot action, the
STI for SDGs Roadmaps in
Africa project,
was initiated with the Joint Research Centre to provide support to the development of
effective innovation ecosystems towards the SDGs in Africa. It will provide a mapping of STI
ecosystems with an in-depth STI for SDG analysis, and work on pilot STI for SDG roadmaps identifying
a policy mix to inform Commission programming and action documents.
SDG #9 Industry, Innovation and Infrastructure
SDG 9 aims at building resilient infrastructure, promoting inclusive and sustainable industrialisation
and fostering innovation. Sustainable investments in energy, transport and digital infrastructure,
together with skills development, the modernisation of the regulatory framework and an enabling
industrial environment are crucial drivers of economic growth and development.
To progress in this direction, in 2021 the Commission continued to foster the connectivity agenda
with a global reach, as a means to advance EU values and policy priorities (Green Deal, Digitalisation
and Sustainable Grow) in alignment with the SDGs targets, through the adoption of the Global
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Gateway Joint Communication
67
on 1 December 2021, which provides the policy framework for EU
connectivity actions around the world in the decade to come. It is anchored in the 2030 Agenda and
seeks to align with the G20 Principles for Quality Infrastructure Investment.
The Global Gateway includes five dimensions: digitalisation; climate and energy; transport; health;
and education and research. It will not just be based on physical sustainable infrastructure, but also
include soft skills and regulatory environments.
Special attention is being given to connectivity with Africa, but the strategy also envisages actions for
the Eastern and Southern Neighbourhoods, as well as the Western Balkans. To boost the
implementation of SDG 9 in Africa, in 2021, the Commission continued to support strategic
multimodal transport corridor development that builds on resilient cross-border infrastructure. In
addition, the Action ‘Knowledge Hub – Global Gateway Support Mechanism’ adopted in December
2021 will contribute to the development of the connectivity agenda and the application of good
practices on quality infrastructure throughout the infrastructure life cycle, in particular in the
transport sector.
Selected results 2018-2021
79 000
km of road were supported by the EU through construction, rehabilitation and
maintenance.
Most of the length of road was maintained (59 000 km), followed by constructed (14 000 km)
and rehabilitated (6 000 km).
In Ethiopia, the Road Sector Policy Support programme (SPSP IV) supported the
establishment of an efficient road network at federal, regional and rural level. This Budget
Support programme contributed to the maintenance of 28 000 km of road in the country.
In the West Bank, the project Area C Development programme in the West Bank - Package II
supported communities with basic social and public infrastructure such as roads, schools,
public parks, and public buildings. Among others, 10 km of road were constructed to improve
access to basic infrastructure.
3.4.
Sustainable Growth and Jobs
Main achievements
The recovery from the COVID-19 pandemic and the achievement of the objectives of the Paris
Agreement and the SDGs calls for a concerted international effort between governments,
multilateral institutions and the private sector to mobilise existing resources in support of clean and
green investment that both advance prosperity and contribute to tackling climate change and
preventing environmental degradation whilst leaving no one behind. In the present context of the
pandemic, which has dramatically worsened public finances in many developing countries, we need
to make use of all means of implementation, including public, private, domestic and international
resources, as well as debt relief solutions.
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The EU is the world largest provider of grant-based budget support. Budget support is results-
oriented and based on a permanent policy dialogue with national governments, aiming to assess and
manage macro and fiscal risks. Within this policy framework, the EU is able to promote mitigating
measures to unsustainable fiscal policies, such as technical assistance on Public Finance Management
(PFM), Domestic Revenue Mobilisation (DRM), debt management and procurement.
With the expiration of the original Addis Tax Initiative (ATI) in 2020, the EU took a leading role in the
co-drafting and launching of the renewed ATI Declaration 2025. In December 2021, the EU endorsed
the new declaration that promotes fair and transparent tax systems around four commitments and
partnership principles, which in turn reflect EU priorities of addressing inequalities and climate
change, digital transition and strengthening gender equality. Along with the other development
partners, the EU committed to maintaining previous resource pledges in the area of DRM for
development within the context of the ATI.
The EU also supports the voluntary re-channelling of Special Drawing Rights (SDRs) from advanced to
developing economies, in line with the proposals made by International Monetary Fund (IMF) to
scale up the lending capacity of the Poverty Reduction and Growth Trust (PRGT) and to establish a
new Resilience and Sustainability Trust (RST). The EU encourages the international community
through, for example, the G20 to explore also other ways of re-channelling SDRs, for example
through Multilateral Development Banks. It encourages EU Member States to contribute to the total
global ambition of USD 100 billion of voluntary contributions for countries most in need as endorsed
by the G20.
In the context of the Global Recovery, debt-for-SDG swaps have the potential for linking debt relief
and investments in exchange for firm commitments to the SDGs, in view of a ‘green recovery, a
digital recovery, a just and resilient recovery.’ The Commission, in close collaboration with EU
Member States interested in the instrument, has explored how to develop the use of debt-for-SDG
swaps under a ‘Team Europe’ approach. Debt swaps are not an instrument to address debt
sustainability and they don’t have the potential to allow large-scale financing to developing countries
and close their SDG funding gap, but debt-for-SDG swaps can be part of a toolbox of different
instruments that could, together, support countries in making progress toward the SDGs. Their main
advantage is the strong dialogue between creditor and debtor country on the investment policy.
Public finance alone will not suffice, however, and sustainable finance has the potential to mobilise
additional private international and domestic investors at scale in developing countries to finance
their sustainable recovery. In 2021, the EU has continued its work in the field of sustainable finance
to facilitate the mobilisation of additional private international and domestic capital for developing
countries at scale, leaving no one behind. In that context, the Commission has started exploring,
together with development finance institutions through a ‘Team Europe’ approach, the scaling up
and further developing of green bond markets in partner countries by addressing challenges to green
bond issuance from both the investor and issuer sides. At the same time, it was decided to develop
an EU Sustainable Finance strategy to scale up sustainable finance in low- and middle-income
countries.
In addition, the NDICI-Global Europe for the MFF 2021-2027 provides additional financing through
innovative financial instruments, notably guarantees. The objective is to encourage investment that
is green, employment intensive and fosters poverty reduction and inclusive development. Increased
attention is put on transparency and debt sustainability considerations in the use of guarantees and
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blending instruments. Synergies between these financial instruments and budget support also
provide increased leverage in policy dialogue.
The EU applies an integrated approach to attracting more investment. The EU budgetary guarantee is
an EU financial tool created in 2017 under the European Fund for Sustainable Development (EFSD).
The EFSD, and its successor EFSD+, aim to bridge the gap between the financing already available and
the financing still needed to create jobs, boost growth, and meet the SDGs.
With over EUR 1.75 billion of the EFSD and EFSD+ Guarantees, the EU has shared the risks involved in
investing together with development banks and private investors. By doing so, the EU encourages
financial institutions to come in, lend to local entrepreneurs and finance development projects. In
addition to EFSD/EFSD+ guarantees and blending financing, the EU also provides technical assistance
and investment in climate support. To date, the EU has contracted EUR 117 million for technical
assistance accompanying the EFSD and EFSD+ guarantees, of which EUR 24 million was contracted in
2021.
In 2021 actions aimed to improve the business environment and investment climate; increase
financial inclusion and access to financial services; and promote trade and trade facilitation for
sustainable and inclusive development and value chains. Decent work was addressed by improving
social, labour, and environmental sustainability; overcoming gender inequality and barriers to
women's and youth economic empowerment; and improving vocational and educational training
(VET) policies and systems that are more responsive to labour market needs and opportunities.
EUR 3 million was committed to extend the EU expert facility on employment, labour and social
protection (SOCIEUX+), providing a demand-driven facility which provides short-term, peer-to-peer
technical assistance to Western Balkan countries. The action will support the Western Balkans
countries in developing employment, labour and social protection strategies, systems and policies
that are more inclusive, effective, responsive, resilient and sustainable - all critical in the aftermath of
COVID-19 crisis.
Several actions have addressed the employment dimension, in particular President von der Leyen’s
commitment to eliminate child labour. A EUR 10 million programme was adopted aiming at reducing
child labour in key sectors and countries where child labour is still persistent and prevalent, and for
which trade with the EU is significant.
A Team Europe initiative on investing in young businesses in Africa (TEI IYBA) was launched to
address the challenge of access to medium- and long-term finance that young African businesses and
entrepreneurs face in their initial growth stages. A EUR 22 million programme was adopted to boost
decent job creation and inclusive and sustainable growth aiming at providing specific technical
assistance and capacity-building on IYBA related issues. This will improve strategic alignment and
cooperation of EU and other international partner’s interventions contributing to the IYBA TEI
strategic approach and enhance the capacity of Entrepreneurship Support Organisations (ESOs) in
providing sustainable services to the young business ecosystem.
In VET, a EUR 15 million pilot project in 11 African countries was launched to align the provision of
skills training to the opportunities and needs of investment programmes, notably the EFSD+. Bringing
VET provision closer to labour market opportunities and needs was also part of an envisaged TEI for
opportunity driven VET for which preparation started in 2021.
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The implementation of EU funded flagship programmes supporting the improvement of the
investment climate and business environment through the Trade, Private Sector Development and
Engagement (TPSDE) Facility, Investment Climate Reform Facility, Rapid Response Window and
Business Friendly programme continued. EU delegations were actively supported on issues related to
Private Sector Development, Investment Climate, Business Environment Reform, Trade and
Employment.
The Commission through the TPSDE Facility continued supporting EU delegations and headquarters
on issues related to trade, private sector and investment climate. The annual TPSDE training took
place encompassing ten sessions with approximately 250 participants from EU delegations.
Regular public private dialogues (PPD) in partner countries notably for micro-, small and medium-
sized enterprises (MSMEs) were promoted. Examples include a virtual marketplace on energy,
funding of programmes providing capacity-building for PPD in the clean cooking sector in Kenya,
supporting PPD for post COVID-19 recovery in Botswana, and boosting renewable energy through
PPD in Tanzania.
In the area of Responsible Sourcing of Raw Materials, the EU increased its financial support to the
European Partnership on Responsible Minerals (EPRM) as an accompanying measure to the EU
Conflict Mineral Regulation
68
, which entered into force on 1 January 2021. Seven new projects were
selected for financing and started in January 2021, promoting the rights and working conditions of
artisanal and small-scale mining communities in several Conflict-Affected and High-Risk Areas such as
Peru, Colombia, Honduras, Democratic Republic of Congo, Uganda, Burkina Faso and Mauritania.
Moreover, beyond support to the small-scale artisanal mining partners in the ACP-EU Development
Minerals programme (involving about 30 000 miners), the EU supported the implementation of the
Extractives Industries Transparency Initiative (EITI), now reaching 56 implementing countries with 27
from Africa, and the integration of climate smart mining in the Extractive Global Programmatic
Support Trust Fund.
The
2021 Aid for Trade (AfT) Progress Report
69
was published in October 2021 confirming the EU and
its Member States remain the main donors of AfT (38 % of global AfT). The report included an
analysis of the COVID-19 response on AfT, confirming EU AfT helped increasing partner countries’
trading capacity, helping them tackle the COVID-19 pandemic. Women’s economic empowerment,
environment and biodiversity protection, as well as digitalisation have been the key areas of EU AfT
action. Africa continued to receive the largest share with 43 % of the total volume, followed by Asia
(21 %), Europe – the EU Neighbourhood and accession countries (13 %) and America (8 %). Seven
thematic reviews were produced in 2021.
68
Regulation (EU) 2017/821 of the European Parliament and of the Council of 17 May 2017
laying down supply
chain due diligence obligations for Union importers of tin, tantalum and tungsten, their ores, and gold
originating from conflict-affected and high-risk areas.
69
European Commission, Directorate-General for International Cooperation and Development, EU aid for trade
progress report 2021 : review of progress on the implementation of the updated EU aid for trade strategy of
2017, Publications Office, 2021,
https://data.europa.eu/doi/10.2841/018990
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SDG #8 Decent Work and Economic Growth
During 2021 the EU strengthened efforts for
women’s economic empowerment
in partner countries
by launching a new EUR 20 million partnership with the Tony Elumelu Foundation and EU
development agency supporting 2 500 African women entrepreneurs.
The
Team Europe initiative investing in young business in Africa (TEI IYBA)
was launched to address
the challenge of access to medium- and long-term finance that young African businesses and
entrepreneurs face in their initial growth stages. The Commission already approved EUR 22 million to
boost decent job creation and inclusive and sustainable growth aiming to provide specific technical
assistance and capacity-building on IYBA related issues; to improve strategic alignment and
cooperation of EU and other international partner’s interventions contributing to the IYBA TEI
strategic approach, and enhancing the capacity of Entrepreneurship Support Organisations (ESOs) in
providing sustainable services to the young business ecosystem.
The Commission continued promoting
trade facilitation and aid for trade (AfT).
The 2021 report of
the latter included an analysis of COVID-19 response on AfT, confirming that the EU AfT helped
increasing partner countries’ trading capacity, helping them tackle the COVID-19 pandemic and
confirmed that the EU and its Member States remain the main donors of AfT.
The President von der Leyen’s commitment to eliminate
child labour
in trade with the EU resulted in
the adoption of EUR 10 million new programme to address child labour in supply chains. To address
the forthcoming sustainable corporate governance directive the Commission prepared accompanying
measures for partner countries. EUR 3 million were committed to extend the SOCIEUX+ project to
Western Balkan countries.
The Commission continued to promote regular
public private dialogue (PPD)
in partner countries
notably for micro-, small and medium-sized enterprises (MSMEs). Overall effort for the
implementation of the key objectives related to private sector development (PSD), investment
climate and business environment reform with regard to the joint PSD strategic framework were also
strengthened.
Key partnerships of the EU with the UN and the OECD on responsible business conduct (RBC) and
corporate due diligence strengthened multilateralism and contributed to important policy
development and business model changes through the promotion of international standards and
Conventions in Asia, in the Americas and in the G7 and G20 fora. Partnership Instrument actions on
RBC (EUR 24.5 million) continued to encourage the uptake of the OECD Guidelines for Multinational
Enterprises, the International Labour Organisation (ILO) Tripartite Declaration, and the UN Guiding
Principles on Business and Human Rights in Latin American and Asian supply chains levelling the
playing field for businesses that integrate environmental and human rights considerations into their
operations and supply chains. Examples of achievements include the development by OECD of new
datasets and indicators for policymakers and the private sector to measure the social and
environment impacts of business activities in global supply chains with a focus on Asia. Seminars and
training sessions on decent work/international labour standards were delivered by ILO in Asia
reaching over 850 companies (half of which were SMEs) making a total of over 2 560 businesses
reached since the beginning of the project. UNDP heightened awareness of Human Rights Due
Diligence through 19 training session involving 1 245 participants, as well as through over 60
workshops/conferences hosting over 4 000 attendees, including EU representatives presenting the
55
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latest EU policy developments on corporate sustainability due diligence. In addition, ten small grants
to civil society organisations (CSOs) working on access to remedy were granted.
Case study: Support to the clean cooking sector in Kenya through Technical Assistance (TA) to
improve public-private dialogues (PPD)
Fuelwood and charcoal production is one of the major driving factors of deforestation in Kenya. The
annual demand for charcoal is estimated at 2.5 million tonnes, requiring 25 million tonnes of wood.
About 40-75 % of the charcoal consumed in Kenya is produced in natural woodlands in arid and semi-
arid lands. Household fuel use in Kenya contributes to 22-35 million tonnes of CO
2
emissions each
year, which is equivalent to 30-40 % of total Kenyan greenhouse gas (GHG) emissions. The Kenyan
Ministry of Health estimates that 21 500 premature deaths per year result from diseases caused by
air pollution from cooking.
Context
The Investment Climate Reform (ICR) Facility provided technical assistance to the Clean Cooking
Association of Kenya (CCAK), which is the sector champion influencing an appropriate and
sustainable market environment and capacity development of its members and other stakeholders,
enabling them to promote the adoption of clean and efficient cooking solutions in Kenya. The ICR
Facility focused on strengthening the existing PPD structures in the clean cooking sector through
tailored advice and the production of knowledge materials to support advocacy efforts for business
environment reforms in the sector. The ICR Facility also trained the CCAK secretariat on conducting
and maintaining an effective and efficient PPD mechanism.
Objectives
The intervention aimed to improve the business environment of the clean cooking sector using
public-private dialogue to develop business environment reform proposals. The TA proposed
recommendations for reforms to the Inter-ministerial Committee on Clean Cooking (IMC) chaired by
the Ministry of Energy and the Climate Change, Health and Energy Working Group (TWG) also
chaired by the Ministry of Energy.
Results
1. Identification of gaps within existing PPD mechanism. The TA’s recommendations have been
adopted by the leadership of these PPD mechanisms.
2. The CCAK secretariat now has the capacity to diagnose, implement, influence and design their
PPDs effectively.
3. The CCAK secretariat is developing a follow-up strategy for the implementation of the decisions
made at each PPD meeting.
4. A technical analysis produced by the ICR Facility is being used by the CCAK to support advocacy for
policy reforms in the clean cooking sector in Kenya.
EU actions to contribute to decent work and economic growth are often directly associated not only
to the pursuit of SDG 8 but also to a broader range of SDGs, given the interlinkages between SDGs
(see Figure 7).
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Figure 7: SDG 8 – Interlinkages with other SDGs
The 101 interventions where SDG 8 (Decent Work and Economic Growth) was reported
as the main SDG also indicated their contribution to other significant SDGs as shown.
SDG #17 Partnerships for the Goals
In January 2021, the European Commission’s department for Development Cooperation became the
department for International Partnerships. This reflected the sense that the traditional aid narrative
was no longer appropriate in the midst of climate change, growing inequalities and shifting
geopolitical dynamics. The move simultaneously underlined that successful sustainable development
requires partnerships, particularly with partner governments, but also with the private sector, civil
society, multilaterals, and financial institutions. The Commission also made working together with
Member States and others as ‘Team Europe’
70
the key approach in EU external relations to achieve
greater impact and improve fostering partnerships of equals with countries around the world – from
Africa to Asia, and from Latin America to the Middle East.
The EU and its 27 Member States collectively remain the largest provider of official development
assistance (ODA) with EUR 70.2 billion
71
in 2021 (up from EUR 67.3 billion in 2020), accounting for 43
% of global ODA
72
(0.49 % of gross national income (GNI), down from 0.50 % in 2020
73
). Latest
70
Team Europe refers to cooperation between the EU, its Member States, their diplomatic network, finance
institutions including national development banks, and implementing agencies, as well as the European
Investment Bank (EIB) and the European Bank for Reconstruction and Development (EBRD).
71
Based on preliminary 2021 data from OECD, published in spring 2022.
72
Global ODA is defined here as including the ODA reported by the EU collective and all other donor countries.
73
This ratio slightly decreased as the nominal increase of ODA was not commensurate with the high nominal
increase of GNI due to the economic recovery.
57
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available figures show that EU collective ODA to least developed countries (LDCs) amounted to EUR
16.3 billion in 2020, corresponding to 0.12 % of collective GNI
74
.
The EU reconfirmed its support to the Addis Tax Initiatives by formally endorsing the declaration
2025. Building on the original declaration, the new initiative raises the level of ambition, bringing in
priorities such as inequalities, green and digital transition, combatting illicit financial flows and
accountability of stakeholders’ participation, while taking forward the quantitative target. In
response to these political commitments, the EU has steadily increased its support to DRM since
2015, becoming the biggest grant provider of DRM support in 2018 and 2019. In 2019, the
Commission already exceeded the 2020 target, reaching EUR 100 million both in DRM commitments
and payments. The positive trend anticipated for 2020 was temporarily halted by the outbreak of the
COVID-19 crisis. The EU’s swift mobilisation of funds to provide partner countries with liquidities
resulted into a reduction of the support to DRM in 2020. As a consequence, EU support to DRM in
2020 was EUR 68.7 million in commitments and EUR 58.6 million in disbursements, respectively.
Amongst other debt facilities, the EU was the second largest contributor to the World Bank’s Debt
Relief Trust Fund (DRTF) in 2020-21, which is a key facility to manage debt sustainability for the
poorest countries. The EU also disbursed SDR 141 million (EUR 183 million) to the IMF's Catastrophe
Containment and Relief Trust (CCRT) to provide debt relief and sustainable investment for the SDGs
as part of the Team Europe Global Recovery initiative. This is part of the EUR 183 million contribution
announced in 2020 in response to the COVID-19 crisis, which made the EU the largest donor to CCRT.
In early 2021, the Commission published its Communication ‘2030 Digital Compass: the European
way for the Digital Decade’
75
committing to building strong international digital partnerships. This is
complemented by the Digital 4 Development (D4D) Hub, a strategic multi-stakeholder platform that
fosters digital cooperation between the EU, EU Members States and global partners. D4D saw its first
operational regional component start its activities in 2021 with the African Union.
74
This includes EUR 897 million of regional ODA known to benefit LDCs, a new element introduced in OECD-
DAC methodology for 2020 data. In 2019, without this element, the EU aggregate ODA to LDCs stood at EUR
19.0 billion (0.12 % of GNI), including the UK which was still a Member State at the time; without the UK, it
would have stood at EUR 13.8 billion (0.10 % of GNI).
75
COM(2021) 118 final of 9 March 2021.
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Selected results 2018-2021
76
560 000
jobs were supported or sustained by the EU.
121
countries were supported by the EU to strengthen investment climate.
792 000
firms had access to financial services with EU support.
2 622 000
individuals had access to financial services with EU support.
33 000
quality schemes were adopted by economic operators with EU support.
1 969 000
people have benefited from institution- or workplace-based VET/skills development
interventions supported by the EU – including 223 000 supported through EU Trust Fund for Africa
projects.
160
countries were supported by the EU to strengthen revenue mobilisation, public financial
management and/or budget transparency.
Source: EU Results Framework indicators
77
A third of the jobs directly created or sustained with the support of the EU were located in
the Sub-Saharan Africa (i.e. South Africa, Ethiopia, Somalia, etc.), and a tenth took place in
the energy sector.
The Promoting Inclusive Economic Growth in Egypt programme aims to strengthen the
capacities of the private sector and civil society to deliver support services to MSMEs
engaged in innovative and creative economic activities, including in cultural tourism projects.
One of the projects in this programme, ‘Visit Badrashin! A responsible tourism strategy for an
inclusive and innovative rural economy’, is supporting the development of a hub to deliver
Business Development Services in a rural area with high unemployment and high tourism
potential. So far, the project has directly created 250 jobs.
The EU supported financial inclusion in 60 countries, assisting micro, small & medium
enterprises (MSMEs) and individuals to access financial products (i.e., credit, insurance,
leasing, etc.), with blending operations being the most common instrument used by firms to
access.
Central America and the Caribbean registers the largest results figure in skills development
through vocational education and training (VET) programmes. In the Dominican Republic,
662 000 individuals have obtained a vocational qualification with the public national institute
of professional formation.
Table 3: EU RF indicators disaggregated by sex
EU Results Framework indicator
Number of beneficiaries with access to
76
Total
2 622 000
women/girls
307 000
men/boys
660 000
Not
identified
1 655 000
2018-2020 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by INTPA and NEAR (ENI) that started between January 2014 and July
2020. The values reported for EU RF indicators are cumulative, including all results reported for these projects
since start of implementation.
77
Collecting results from EU-funded interventions managed by NEAR (ENI) and INTPA. Further information on
scope and methodology in chapter 6.
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EU Results Framework indicator
financial services with EU support: b)
individuals
Number of people who have benefited
from institution- or workplace-based
VET/skills development interventions
supported by the EU
Total
women/girls
men/boys
Not
identified
1 969 000
883 000
751 000
335 000
Selected results 2018-2021 for the Enlargement region
78
1 835 072
jobs were supported or sustained by the EU.
20
public policies to strengthen investment climate were supported by the EU.
1 082 535
firms had access to financial services with EU support.
23
public policies to strengthen revenue mobilisation, public financial management and/or budget
transparency were supported by the EU to strengthen investment climate.
Source: IPA Performance Framework indicators
79
3.5.
Migration
Main achievements
With migration and forced displacement continuously high on the EU policy agenda, much attention
in 2021 focused on the implementation of the external dimension of the EU Pact on Migration and
Asylum. Events in Afghanistan and Belarus, but also protracted displacement situations and
continued irregular and unsafe migration flows in the EU Neighbourhood region, Sub-Saharan Africa,
Asia and the Middle East and in the Americas demonstrated the importance of implementing the
Pact. Continued COVID-19-related travel restrictions also further exacerbated the challenging
situation for many migrants and forcibly displaced persons during the year.
Against this backdrop, the EU stepped up its engagement with partner regions and countries, with a
particular focus on the Southern Neighbourhood, Sub-Saharan Africa and Asia, to forge
comprehensive migration partnerships, including tailor made action plans, addressing challenges and
priorities of each side supported by increased political dialogue and high-level outreach. The political
engagement was complemented by increased efforts, including funding, to provide substantive
support addressing all aspects of migration and forced displacement. In addition, a very significant
part of the EU´s humanitarian budget in 2021 was allocated to projects addressing the needs of
forcibly displaced persons and their host communities. This financial support was channelled through
78
2018-2020 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by NEAR (IPA) that started between January 2014 and July 2020. The
values reported for IPA PF indicators are cumulative, including all results reported for these projects since start
of implementation.
79
Collecting results from EU-funded interventions managed by NEAR (IPA). Further information on scope and
methodology in chapter 6.
60
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organisations dealing with refugees, internally displaced persons, migrants and host communities on
the ground. About 35 % of the EU’s humanitarian budget reached forcibly displaced persons in the
form of cash transfers
80
.
In the
Neighbourhood region,
effective migration management in cooperation with partner
countries was supported with actions covering all aspects of the EU’s external dimension of
migration policies including all priorities of the Pact on Migration and Asylum. Programmes have
been adapted to support migrants, refugees, the forcibly displaced and host communities in the
context of the continuing impact of the COVID-19 pandemic. Throughout 2021, the
EU Regional
Trust Fund in Response to the Syrian crisis
(EUTF Syria) remained a major EU tool to address the vital
needs of Syrian refugees and host communities in neighbouring countries, already reaching more
than 8.4 million people. A strategic support package of EUR 5.7 billion was agreed in 2021 for
refugees and host communities in Turkey, Jordan, Lebanon, Iraq and Syria. To cover needs in
North
Africa
previously funded under EUTF Africa,
a new multi-country programme on migration,
is under
preparation. For 2021, individual measures amounting to EUR 165 million were approved under
NDICI-Global Europe in line with the four priority areas foreseen in this new programme: protection
and basic service delivery to vulnerable migrants and refugees in Libya; support to border
management institutions in Tunisia and Libya; return and reintegration; and labour migration.
Cooperation on migration and integrated border management is a specific objective in the regional
multiannual indicative programme (MIP) for the Eastern Neighbourhood
2021-2027 that was
adopted in December 2021 alongside the MIPs for Ukraine and Armenia, in which migration is also
one of the priorities. The political exploitation of migrants in Belarus called for responses including
increased assisted voluntary return and reintegration (AVRR) support via an ongoing action with the
International Organisation for Migration (IOM).
In the
Western Balkans,
the regional support to protection-sensitive migration management phase II
ended in December 2021. The programme, implemented jointly by Frontex, the European Asylum
Support Office (EASO), the IOM and the United Nations High Commissioner for Refugees (UNHCR)
continued to build capacities in all areas of migration management. The first IPA III funded
programmes were adopted in December 2021.
In
Sub-Saharan Africa,
international mobility resumed in 2021, following the lifting of certain COVID-
19 related travel restrictions. However, the increase in the number of health-related measures, as
well as the fluctuating spread and detection of COVID-19, continued to have an impact on migration
and mobility. Six years after its establishment, the EUTF for Africa continued fostering stability as well
as addressing migration and forced displacement challenges and opportunities, including their root
causes, in close cooperation with African partners. In 2021, the EUTF for Africa consolidated its
achievements with the approval of four new actions and 34 budgetary top-ups for a total of EUR
242.6 million. This brings the total amount of approved programmes to EUR 4 935.1 million.
80
The objective of EU humanitarian aid is to provide assistance, relief and protection to victims of natural and
man-made disasters outside the EU to meet the needs arising thereof. It is provided in accordance with the
humanitarian principles of Humanity, Impartiality, Neutrality and Independence. Over the years, forcibly
displaced (refugees and internally displaced people) and sometimes also migrants caught in humanitarian
crises have benefited from EU’s support to cover their needs. EU humanitarian aid is not a migration
management tool and as such, is not subject to any conditionality or used as a leverage tool.
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In 2021 in Sub-Saharan Africa the new NDICI-Global Europe fund started to finance measures in the
area of migration and forced displacement. The regional MIP adopted at the end of 2021 for this
region included a specific provision of EUR 1 600 million for migration and forced displacement
matters, to be committed over the period 2021-27. Under this regional MIP, three measures were
already adopted at the end of 2021, for an overall amount of EUR 234 million, two of them
addressing, in partnership with UNHCR, the forced displacement challenges of the region, and the
third one aiming to continue the Joint Initiative on Migrant Protection and Reintegration,
implemented by the International Organisation for Migration (IOM).
Several other actions under the NDICI-Global Europe country MIPs were adopted in 2021
contributing to address the mixed migration flows from and within Niger, Burkina Faso, Senegal,
Nigeria and Ivory Coast, while an action to support in Sudan the refugees fleeing the Tigray region
was adopted under the ‘rapid response pillar’ of the NDICI-Global Europe fund.
Within Asia, highlights in 2021 were the approval of the regional MIP for Asia-Pacific, where
migration and forced displacement feature as a priority area with an allocation of EUR 422 million
over the period until 2027. This will support and complement actions to be approved at country
level.
Bangladesh, Iraq and Pakistan are considered as priority countries for migration partnerships. EU
development cooperation in these countries has included a strategic focus on sectors that provide a
balanced approach, targeting poverty and inclusive growth, thereby addressing root causes of
fragility and migration. Examples are job creation through private sector development, income
generation, community development projects and technical and VET programmes.
In Afghanistan, the Commission is addressing the root causes of migration and forced displacement
through its support to basic needs and its response to the effects of internal and regional forced
displacement, without recognising or legitimising the de facto authorities.
To that end, under the NDICI-Global Europe fund, a package of special measures for the Afghan
regional displacement situation (EUR 79 million) was fast-tracked for adoption at the end of 2021.
Forced displacement situations were addressed also in other parts of Asia. For instance, at the end of
2021, was adopted under the country MIP of Iraq an action (EUR 75 million) to support this country
in promoting the social and professional inclusion of its internal displaced people as well as of the
Syrian refugees hosted on its territory. In addition, under the regional MIP and the ‘rapid response
pillar’ of the NDICI-Global Europe fund, programmes in Myanmar and Thailand were adapted and
approved to take account of the evolving situation in Myanmar in 2021.
In the
Americas,
the highlight in 2021 was the third conference on the Venezuelan refugee and
migrant crisis, which was hosted in June 2021 by Canada with the support of the EU. The latter
pledged at the conference EUR 147 million in grants. As an immediate follow up to this, a new EUR
15 million action supporting Venezuelan migrants and refugees in Peru, Colombia and Ecuador was
adopted by the Commission under the ‘rapid response pillar’ of the NDICI-Global Europe fund.
At the end of 2021 the NDICI-Global Europe regional multiannual indicative programme (MIP) 2021-
2027 for the Americas was adopted. This document identifies migration and forced displacement as
one of the EU’s objectives in the region, without however setting a specific budget allocation for the
actions in this area. The regional MIP is expected to primarily focus its contribution on addressing the
impact of the Venezuelan displacement situation in the neighbouring countries in South America,
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while possibly intervening also in displacement situations in Central America and the Caribbean
region. The regional MIP should be complemented, when feasible and appropriate, by actions at
national level to be funded by country MIPs.
The result of the
NDICI-Global Europe programming process
undertaken in 2021 resulted in notable
achievements in ensuring the indicative at least 10 % migration and forced displacement spending
target should be met across geographical and thematic multi-annual indicative programmes, with
relevant migration and forced displacement considerations adequately integrated in a context
specific and tailor-made manner. The inclusion of migration and forced displacement elements into
both the political level dialogues and the programming framework was crucial to equip the
Commission with adequate tools to contribute to the implementation of the EU's policy priorities in
the area of migration, complementing other relevant EU tools as well as those of EU Member States.
On 3 December 2021 the Commission convened the first meeting of the ‘Coordination Group on
Migration under the NDICI-Global Europe and Member States’ bilateral funds’. The Commission and
EEAS established this informal group with the objective to facilitate the exchange of information with
and among the EU Member States on the projects being respectively planned in the areas of
migration and forced displacement, so as to ensure a better coordination and synergy, and a
consistent application of the ‘Team Europe’ approach.
SDG #10.7 Reduced Inequalities
Migration and forced displacement are global phenomena that affect all countries and can result in
both opportunities and challenges for countries involved, as well as the migrants themselves. While
most migration journeys take place in a regular and orderly way, irregular and unsafe migration paths
often put migrants and displaced people in vulnerable situations with high risks for exploitation,
abuse and exclusion. Cooperation on migration and forced displacement is therefore an integral part
of
our relations and our cooperation with partner countries.
Addressing the root causes of irregular
and unsafe migration, combatting migrant smuggling and the trafficking in human beings, supporting
refugees and other displaced people, as well as their host communities in third countries and
facilitating well-managed and legal migration is critical to achieve the SDGs in relation to inequality.
Hence, in line with SDG target 10.7 on facilitating
orderly, safe, regular and responsible migration
and mobility of people,
the EU implements a comprehensive and balanced partnership approach,
providing tailor made and context specific support to partner countries to address migration and
forced displacement challenges.
To achieve this goal, the causes and consequences of inequality must be understood, which can be
complex and deeply rooted in social, economic, political and environmental systems and resources.
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Selected results 2018-2021
81,82
20 430 000
migrants, forcibly displaced people or individuals from host communities were
protected or assisted with EU support – including 560 000 supported through EU Trust Fund for
Africa projects.
81
migration management or forced displacement strategies or policies were developed/revised
with EU support and
65
migration management or forced displacement strategies or policies were
implemented with EU support
- including three supported through EU Trust Fund for Africa projects.
Examples of protection measures or assistance for migrants, forcibly displaced people, or
individuals from host communities include support in the areas of medical services and
psycho-social assistance, access to basic services, skills development, and legal assistance.
Projects providing protection or assistance reached people in 70 countries, including 487 000
persons in North Africa, 5 400 000 in Sub-Saharan Africa, 12 200 000 in Middle East Asia and
2 000 000 in South & Central Asia.
Table 4: EU RF indicator disaggregated by sex
EU Results Framework indicator
Number of migrants, forcibly displaced people
or individuals from host communities
protected or assisted with EU support
Total
20 430
000
women/girls
men/boy
s
5 240 000
Not
identified
10 488 000
4 702 000
Selected results 2018-2021 for the Enlargement region
83
11
public policies of migration management and/or forced displacement were supported by the EU.
4
EU funded interventions supported by the EU report improvement of compliance of Border and
Security Systems with EU / Schengen Acquis.
Source: IPA Performance Framework indicators
84
81
82
Provisional numbers, will be subject revision.
2018-2021 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by INTPA and NEAR (ENI) that started between January 2014 and July
2020. The values reported for EU RF indicators are cumulative, including all results reported for these projects
since start of implementation.
83
2018-2020 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by NEAR (IPA) that started between January 2014 and July 2020. The
values reported for IPA PF indicators are cumulative, including all results reported for these projects since start
of implementation.
84
Collecting results from EU-funded interventions managed by NEAR (IPA). Further information on scope and
methodology in chapter 6.
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3.6.
Governance, Peace and Security
Main achievements
Programming of support to human rights and democracy under Global Europe was completed in
2021. The vast majority of partner countries will have programmes addressing democratic
governance, and benefit from a range of new global initiatives on participation and independent
media. In addition, in the Delegated Act supplementing the new NDICI-Global Europe instrument,
geographic programmes have a thematic target of at least 15 % for human rights, democracy and
good governance. A majority of partner countries will also have programmes to strengthen their
justice systems, aiming at long-term, sustainable solutions to systemic issues. The accessibility and
effectiveness of key justice institutions, as well as the digitalisation of justice systems, will be a
particular focus.
The EU has also launched its Team Europe Democracy initiative providing a platform to better
coordinate actions between EU Member States and enhance support to rule of law, accountability
and governance projects in partner countries around the world. Specific support to transparency and
accountability also saw the launch of the EUR 5 million SANCUS programme with Transparency
International supporting civil society to drive systemic change in 16 countries over 36 months.
Support also continued to the ‘Global Monitor of COVID-19’s Impact on Democracy and Human
Rights’ a ‘one-stop’ online global monitoring platform, implemented by the International Institute for
Democracy and Electoral Assistance (IDEA), with data and brief analysis by country for 165 countries
around the world.
Civil Society and Local Authorities
In 2021, EU engagement with civil society organisations (CSOs) remained strong through
strengthened dialogue, partnerships with global and regional CSO networks and substantial support.
CSOs continued to provide a significant contribution to enhancing communities’ resilience in the
context of COVID-19, supporting marginalised vulnerable groups, monitoring and reacting to changes
in the enabling environment.
The year 2021 saw the adoption of the 2021-2027 multiannual indicative programme (MIP) and
2021-2024 multiannual action plan (MAAP) of the new Civil Society Thematic programme under the
NDICI-Global Europe Instrument. Promoting an enabling environment for CSOs in a context of a
closing civil space remains a key goal of the new, EUR 1.5 billion programme. Other, closely
interlinked overarching objectives are the strengthening of CSOs capacities to perform their roles as
actors of democratic governance and development as well as the participation of CSOs in policy
processes at all levels. At least 75 % of the resources allocated to the programme will be spent on
actions in partner countries.
Efforts to ensure civil society participation in the design of EU policy and programmes were
intensified in EU Delegations. The focus on women and youth was consistently implemented in
dialogues with civil society. CSOs engaged on gender and women issues and youth organisations
were systematically included in consultations held at country level. At global level, the Policy Forum
on Development organised ten virtual consultations, ensuring civil society and local authorities’ input
and recommendations on regional and thematic programmes including a dedicated event on the
implementation of the third EU Gender Action Plan (GAP III).
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As public actors closest to the citizens, local and regional governments (LRGs) are in a unique place to
reply to most of the pressing challenges being faced today and that will characterise the world of
tomorrow. In 2021 the EU renewed its support to global and regional associations (UCLG, UCLG
Africa, AIMF, CEMR/Platforma, and CLGF) and launched 15 new city-to-city partnerships, adding to
the 42 partnerships already underway under the ‘Local authorities: partnerships for sustainable
cities’ programme.
Jointly with the European Committee of the Regions, the Commission organised in November 2021
the seventh International Forum ‘Cities and Regions for International Partnerships’ focusing on two
key themes: ‘Sustainable and Green Recovery’ and ‘Participatory Citizenship and Good Governance’.
The Forum gathered participants from more than 80 countries and provided a unique opportunity for
dialogue and fostering cooperation among local and regional authorities from the EU and its partner
countries from Africa, Asia and Latin America.
Inclusion of local authorities in geographic programmes made satisfactory progress, with local
authorities to be directly supported under 37 country MIPs; on track to achieve minimum spending
of EUR 500 million as stated in the NDICI-Global Europe Regulation
85
.
The Development Education and Awareness Raising (DEAR) programme continued to support the
wider understanding of development policy among the European public.
Conflict prevention, sustaining peace and building resilience
The resurgence of conflicts, including in the immediate neighbourhood of the EU, reminded us how
crucial it is to continue to engage with partners in building conflict-free, democratic, secure and
resilient societies; and the importance of having a robust and effective EU toolbox on conflict
prevention, crisis management and response.
The coherence of actions related to resilience and peace is ensured through shared analysis of the
root causes and drivers of fragility and crisis and improved conflict sensitivity of our interventions. A
more systematic approach to implement conflict analysis screenings (CAS) and conflict sensitivity
assessments at the time of programming and at all stages of the intervention cycle is being applied.
The Commission ensured the co-coordination and implementation of CAS processes and
methodologies, by preparing and facilitating inter-service workshops (mostly virtual) and joint
missions to EU Delegations. Support to delegations, guidance and tools are being provided, and a
monitoring should ensure the implementation of recommendations generated by respective CAS
exercises throughout the different phases of the intervention cycle.
Similarly, the implementation of the Structural Country Assessments in 2021 by the Commission
services and the EEAS facilitated the dissemination of the risk analysis methodology among EU
Delegations, EU Member States and other EU actors, ensuring the implementation and monitoring of
Conflict Prevention options for action.
In 2021 a second workshop on the humanitarian-development-peace (HDP) nexus was organised to
discuss challenges and opportunities in the implementation of the HDP nexus. It took stock of the
85
Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009.
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progress made in the six pilot countries (Chad, Iraq, Myanmar, Sudan, Uganda, Nigeria) and
improvements in operational implementation methods for the nexus.
Fight against terrorism and organised crime
Terrorism continued to be a challenge for the EU and its neighbourhood in 2021. Terrorist threats
became more complex due to the COVID-19 pandemic and the increased use of on-line
communication and digital means. The
EU Counterterrorism Agenda
adopted in December 2020
stipulates the importance of reinforcing international cooperation across the four pillars of the
agenda (anticipate, prevent, protect, and respond). The prevention of radicalisation (including on-
line radicalisation) remains an important strand of the EU’s action in the neighbourhood. On the law
enforcement side, the implementation of EU regional projects continued, for instance, the Sharaka
project led to a wide application of International Criminal Police Organisation (INTERPOL) systems in
countries in the Southern Neighbourhood. The EU Global Facility on anti-money laundering and
countering the financing of terrorism (AML/CFT) remained a key tool to assist partners in complying
with international standards on AML/CFT.
Equally, organised crime groups continued to pose a threat to both the EU and its neighbourhood.
Organised crime operations developed and adapted to the COVID-19 pandemic, for example through
an increase in fraud and counterfeiting of medical products and on-line crime. In April 2021, the
Commission presented
a new strategy to tackle organised crime
for the period 2021-2025. In the
Southern Neighbourhood, within the framework of the EuroMed Justice programme, Southern
Neighbourhood countries contributed to the preparation of an action plan on judicial cooperation for
countering trafficking in human beings and smuggling of migrants. Another action plan was produced
on confiscation of crime proceeds and asset recovery.
In the Eastern Neighbourhood, within the Eastern Partnership (EaP) framework, a regional
programme on the fight against organised crime is being implemented in partnership with CEPOL,
Europol and the United Nations Interregional Crime and Justice Research Institute (UNCRI). This aims
at strengthening strategic and operational police cooperation between the region, the EU and its
Member States. Support is also being provided to increase the capacity of the EaP partners to trace,
freeze, seize, confiscate and recover assets linked to criminal activities.
Cooperation under the framework of the European Multidisciplinary Platform Against Criminal
Threats (EMPACT) - the flagship EU instrument for cooperation in the fight against organised and
serious international crime - continued with a reinforced commitment from several third countries to
engage in activities of the new cycle 2022-2025. With the above-mentioned EU strategy to tackle
organised crime in place, work accelerated on strengthening the external dimension of EMPACT
through the establishment of SOCTA
86
-type threat assessments in neighbouring countries.
The cyber landscape has continued to evolve. Dependencies on technologies have further increased,
as have vulnerabilities to cyber (facilitated) criminality. Through the EU funded regional CyberEast
programme, capacity building and technical assistance support continues to be provided to the EaP
partners on cybersecurity and cybercrime. The programme supports bringing the partners’
institutional and legal frameworks closer to EU cybersecurity standards and implementing the
Council of Europe Convention on cybercrime (the Budapest Convention).
86
Serious and Organised Crime Threat Assessment.
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In 2021,
security and Security Sector Reform (SSR)
were integrated in the Peace, Stability and
Conflict Prevention Thematic programme and geographic programmes.
Priority actions and activities in 2021 contributed to building a stronger Europe in the world by
promoting an integrated approach to Security Sector Reform (SSR), including Capacity Building in
support of Security for Development (CBSD), as well as providing support and expertise to the
strengthening of the entire criminal justice chain in partner countries.
Security and Security Sector Reform, Organised Crime, Anti-Money Laundering and Financial Crimes
have been considered as priority sectors for intervention in several national and regional multiannual
indicative programmes (MIPs) across all geographical areas. Across regions, the EU assisted partners
in the design and implementation of reforms in the fields of good governance, rule of law and the
judiciary, public safety and the rule of law, border management and counterterrorism. The COVID-19
pandemic temporarily slowed down the engagement in Security Sector Reforms (SSR), although the
demand for greater accountability and advancement in reforms remained high.
SDG #16 Peace, justice and strong institutions
Following the adoption of the NDICI-Global Europe, joint analytical tools and methodologies are
being implemented in an inter-service process more systematically, notably through conflict analysis
and conflict sensitivity assessments as key inputs to the programming exercise. The implementation
of EU Structural Country Assessments (SCA) is continuing in a complementary fashion. The NDICI-
Global Europe holistically included several requirements and provisions on conflict sensitivity and
resilience, including a mandatory requirement for conflict analysis for all fragile and conflict-affected
countries, to ensure conflict sensitive programming based on a Do-No-Harm approach.
A total of 16 (plus four in Neighbourhood and Enlargement countries: Lebanon, Moldova, Ukraine,
West Bank/Gaza and Georgia) joint conflict analysis screenings were undertaken in 2021, in
compliance with the NDICI-Global Europe requirements, as well as four (plus one in a Neighbourhood
and Enlargement country) EU Structural Country Assessments, three conflict sensitivity trainings in
English and French, and one tailored for a EU delegation in Spanish, and several presentations
related to this topic. In addition, twelve Conflict Sensitivity Guidance Notes were published on the
relevant policy frameworks, methodologies, and sectoral and thematic approaches. A training with
interactive workshops on the humanitarian-development-peace nexus was held with EU delegations
from pilot countries and two resilience assessments were carried out with two delegations in African
countries.
With regard to peacebuilding related EU policies associated with Disarmament, Demobilisation and
Reintegration (DDR), 2021 saw the adoption in December of the EU Joint Communication on DDR
87
.
Building on the 2006 DDR concept and considering lessons learned from the international
community, the EU Joint Communication on DDR provides an updated EU understanding of the DDR
concept and approaches against the backdrop of a changing conflict and fragility landscape, building
on the experiences and developments in the field, as well as aligning with the UN DDR standards. It
also strengthens links with other key policies, such as Security Sector Reform, Transitional justice,
etc. and builds on provisions aiming at conflict sensitivity, ‘do no harm’ and ‘leaving no one behind’
principles.
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JOIN(2021) 35 final of 21 December 2021
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With regards to resilience, peace and security, a total of 42 countries included security/Security
Sector Reform (SSR) as a priority in their national MIPs, 26 countries included resilience and 29
countries included peace. Moreover, under the new Team Europe initiatives (TEI) in which Member
States participate together with the EU to enable a major impact on selected priorities, there were at
the end of 2021 more than 20 initiatives focused on security aspects proposed for co-funding, 60 on
resilience and 15 on peace.
Selected results 2018-2021
56
countries were supported by the EU to conduct elections and/or improve their electoral process.
1 600
government policies were developed or revised with CSO participation through EU support.
129 000
victims of human rights violations directly benefited from assistance funded by the EU.
5 831 000
people directly benefited from legal aid interventions supported by the EU.
968 000
individuals directly benefited from EU-supported interventions that specifically aim to
support civilian post-conflict peacebuilding and/or conflict prevention.
11 400
state institutions and non-state actors were supported on security, border management,
countering violent extremism, conflict prevention, protection of civilian population and human
rights – including 20 supported through EU Trust Fund for Africa projects.
Source: EU Results Framework indicators
88
Nearly 130 000 victims of human rights violation directly benefited from assistance funded
by the EU. Examples of support provided include medical and psychosocial support, legal
support, material support, temporary relocation, protection against intimidation or risk of
retaliation.
In Tanzania, more than 2.8 million people – more than half of them women – benefited from
legal aid education with EU support which was conducted by paralegals through village
assemblies, religious places, markets, or door to door.
The number of government policies developed or revised with civil society organisation (CSO)
participation more than doubled since last year (from 730 to 1 600 policies). In Georgia, 39
policies were developed with CSO participation. In the context of the project ‘Improving the
Agriculture Sector in Georgia’, CSOs were part of public consultations on the policy work
developed by the project, including a strategy for agriculture and rural development, an
agricultural extension strategy and a law on aquaculture.
Table 5: EU RF indicators disaggregated by sex
EU Results Framework indicator
Number of victims of human rights violations
directly benefiting from assistance funded by
the EU
Number of people directly benefiting from
88
Total
women/
girls
15 000
2 049 000
men/boys
Not
identified
93 000
1 691 000
129 000
5 831 000
21 000
2 091 000
Collecting results from EU-funded interventions managed by NEAR (ENI) and INTPA. Further information on
scope and methodology in chapter 6.
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EU Results Framework indicator
legal aid interventions supported by the EU
Number of individuals directly benefiting from
EU-supported interventions that specifically
aim to support civilian post-conflict
peacebuilding and/or conflict prevention
Total
women/
girls
men/boys
Not
identified
968 000
169 000
153 000
646 000
Selected results 2018-2021 for the Enlargement region
89
153
electoral recommendations (of the International Election Observation missions (EOM) done by
the OSCE/ODIHR or the EU EOM (case of Kosovo)) were followed up and/or implemented with EU
support.
474
judges, prosecutors, lawyers and court staff strengthened their capacities on European standards
and EU acquis with EU support.
7
countries adopted and/or implemented the legal framework for the protection, promotion and/or
enforcement of human/fundamental rights (including freedom of expression and Media, freedom of
assembly and freedom of association and non-discrimination and rights of minorities) with EU
support.
53
public policies were developed and/or revised with internal and external consultations with EU
support.
Source: IPA Performance Framework indicators
90
89
2018-2020 stands for the reporting year. The EU-funded interventions that contribute to this figure are
ongoing or closed projects managed by NEAR (IPA) that started between January 2014 and July 2020. The
values reported for IPA PF indicators are cumulative, including all results reported for these projects since start
of implementation.
90
Collecting results from EU-funded interventions managed by NEAR (IPA). Further information on scope and
methodology in chapter 6.
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4.
4.1.
Geographic Overview
Sub-Saharan Africa
4.1.1. Introduction (policy developments)
On 15 April 2021, the EU and the members of the Organisation of African, Caribbean and Pacific
States (OACPS) initialed the draft agreement renewing their strong partnership, known as the ‘post-
Cotonou’ Agreement. The Council was expected to adopt the decision on signature and provisional
application of the Agreement on 21 December 2021. However, the adoption was postponed, and the
transitional measures on the implementation of the Cotonou Partnership Agreement were extended
until 30 June 2023
91
.
Due to the continuation of the COVID-19 pandemic and related travel and meeting restrictions, the
EU-AU Summit, initially foreseen in 2021, was postponed. The EU kept up the momentum with
important political and policy dialogues and a continued engagement with its African partners, as
well as a diverse range of stakeholders (representatives from civil society, youth organisations,
private sector, etc.) across both continents, to further discuss the short and long-term priorities at
the heart of a renewed Africa-EU Partnership. During 2021, on the way to the Summit, numerous
virtual consultations were organised with Commissioner Urpilainen in the lead and many other
Commissioners participating.
Ahead of the sixth EU-AU Summit rescheduled for 17-18 February 2022, Ministers for foreign affairs
met in Kigali in October 2021 to discuss the most important common priorities, opportunities and
challenges for the agenda. Ministers outlined four key areas for future cooperation: the joint COVID-
19 response; recovery: green and digital transitions; peace, security and governance; and migration
and mobility.
The fourth AU–EU agricultural ministerial conference took place on 22 June 2021, co-hosted by the
African Union Commission and the European Commission. The conference enabled AU and EU
agriculture ministers to exchange views and share best practices on the development of more
sustainable food systems, also in the context of responding to the COVID-19 pandemic.
In 2021, West and Central Africa remained in the grip of the ongoing pandemic and has continued to
face multiple crises. 31 million people were in food crisis between June and September, a 45 %
increase compared to 2020. Growing insecurity had also led to massive population displacement;
more than 8 million refugees and internally displaced people (IDPs) are in 2021 living in West and
Central Africa, of which 3.8 million were in the G5 Sahel countries. The security situation in the Sahel
and Lake Chad sub-regions continued to deteriorate. Insecurity linked to the on-going conflict has
moved from the Sahel towards the coastal countries of the Gulf of Guinea.
A wave of attempted and successful coups d’état in Mali (August 2020 and May 2021), Chad (April
2021), and Guinea (September 2021), often as a consequence of weak governance and increasing
insecurity in the communities, also shocked the region.
In the light of the increasing threats and the widespread agreement that the security-focused
approach did not achieve the expected results, a new EU integrated strategy for the Sahel was
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Decision No 1/2022 of the ACP-EU Committee of Ambassadors of 21 June 2022 to amend Decision No 3/2019
of the ACP-EU Committee of Ambassadors to adopt transitional measures pursuant to Article 95(4) of the ACP-
EU Partnership Agreement [2022/1102]:
https://eur-lex.europa.eu/eli/dec/2022/1102/oj)
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endorsed by the Council on 16 April 2021 putting in place a more comprehensive approach focused
on strengthened governance, development and mutual accountability. A ‘civilian and political surge’
in line with the priorities of the Sahel Coalition was decided at the Ndjamena Summit in February
2021.
A new Horn of Africa strategy was also adopted on 10 May to deepen the EU strategic relationship
with the region
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.
While the impact of the COVID-19 pandemic continued to bring serious human and socio-economic
consequences,
Eastern and Central African countries
experienced a challenging year in 2021, with a
general deterioration in security, growing instability and a decline in respect for fundamental and
democratic values. The Ethiopian and Sudanese crises had an impact on the programming processes
and the implementation of EU programmes, as well as on the security and economy of other
countries in the Horn of Africa. There have been some gains and setbacks in the conflicts affecting
Cameroon, the Central African Republic (CAR) and the Democratic Republic of the Congo (DRC), but
overall, there was no substantive progress.
The impact of the COVID-19 pandemic continued to bring serious human and socio-economic
impacts, with both political and rule of law implications as state capacity was severely restricted in
many countries due to lockdown. The worst security threat in the region came in northern
Mozambique, where the insurgency in Cabo Delgado Province continued and its humanitarian and
security impact significantly worsened, with over half a million internally displaced persons by the
end of 2021. In addition to the ongoing crisis in northern Mozambique, trafficking, illicit flows linked
to wildlife and minerals, and the international drugs trade continued to exert a negative influence on
the region.
Climate change continued to have a significant impact on the Southern Africa region, bringing further
water shortages and related hydroelectric power supply load shedding. A positive development was
elections in Zambia, representing an important achievement for the rule of law. In Lesotho, the EU
continued to encourage implementation of the outcome of the national dialogue process. The EU
reiterated its openness to review its policies towards Zimbabwe in the event of demonstrable
progress in human rights and the rule of law, but expressed regret that such progress was not
evident. The political situation in Eswatini has become challenging.
4.1.2. Working together towards the SDGs
In 2021, the EU pursued its support to reaching the SDGs in Africa, while socio-economic recovery
continued to be hampered by the long-term consequences of the COVID-19 pandemic.
In line with the
Green Deal
strategy of the Commission, boosting the green transition in our partner
countries has been a common priority across the continent contributing to SDG 1, 3, 7, 8, 9, 12, and
13. This support will also contribute to reaching the Global Europe spending target on climate and a
significant contribution to the MFF spending target on biodiversity. It translated into specific
programmes in various countries, such as biodiversity protection in Sierra Leone and Liberia, a
landscape approach promoted in Burundi, and boosting land management sensitive to climate
change in Cameroon and Congo.
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Council Conclusions 8135/21 of 10 May 2021.
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Engagement with
youth
(increasingly important political drivers, as demonstrated for instance in the
recent elections in Zambia),
women
(bearing in mind the low level of political representation of
women and high Gender-Based Violence in some countries),
and civil society
(important for
advocacy and as a vehicle for implementation in the few countries where assistance is not provided
via government structures) has been key in the planning of future EU cooperation for the period
2021-2027. Regular consultations contributed to enhance EU support to SDG 5 and 16 in Africa. The
strong involvement of women notably resulted in ambitious gender mainstreaming throughout
programmes across the continent but also to dedicated interventions: empowering youth and
women is, for example, the object of a dedicated sector in Kenya and Nigeria and inequalities and
gender are a priority in DRC and Burkina Faso, thereby supporting SDG 5 and 10. Strengthening the
role of youth has been identified as a cross-cutting issue in most countries of Western, Central and
Eastern Africa and a priority area for Mali, Niger and Djibouti.
Furthermore, in the fragile contexts of
West, Central and Eastern Africa,
SDG 16 remained at the
centre of the effort, with specific attention on
good governance, peace and security.
Investment was
also made in human development through
health
(SDG 3, for example with dedicated programmes in
Burundi, CAR and DRC) and
education
at all levels including technical and vocational training (SDG 4,
with specific projects adopted in 2021 for Mauritania, Niger, Nigeria, Côte d’Ivoire, DRC, Somalia,
South Sudan). This contributed to the 20 % of ODA related social inclusion and human development
spending target of Global Europe. SDG 11 on sustainable cities was also addressed, with programmes
on Green Cities in Cameroon, Djibouti and Tanzania. Where appropriate,
migration
challenges were
also addressed (SDG 1, 17).
In the
Southern Africa and Indian Ocean region,
as well as the Green Deal, decent jobs and
economic growth including economic diversification (SDG 8) and education (SDG 4) have been at the
centre of EU planned cooperation. As in other regions, for instance in Western, East and Central
Africa with Congo and Tanzania, digital has been mainstreamed in most programmes and specific
programmes support human centred digitalisation (SDG 8, 9).
In terms of SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in Sub-Saharan Africa. During the period 2014-
2020 there were 12 000 short-term mobilities in both ways, 1 213 Erasmus Mundus scholarships to
Sub-Saharan students, and 37 capacity-building projects and 4 Jean Monnet projects with higher
education institutions in the region.
The budget for Sub-Saharan Africa was multiplied by 3.5 times for 2021-2027. In 2021 though there
were exceptionally only 2 Erasmus+ calls opened for the region: only 1 Jean Monnet Module from
Nigeria was selected, but there were also 3 full partners and 14 associated partners to Erasmus
Mundus Joint Masters from Sub-Saharan Africa, while 285 students received Erasmus Mundus
scholarships.
4.1.3. Implementation
At continental level, important progress has been achieved, thanks to the 2014-2020 Pan-African
Instrument, in the operationalisation of the AU-EU D4D Hub, a powerful mechanism to advance the
implementation of the digital agenda in Africa. The EU also supported the implementation of the
African Continental Free Trade Area (AfCFTA) Agreement, notably through the African Trade
Observatory and the Harmonised System for the classification of products. Together with Member
States, under a Team Europe initiative, an EU Technical Assistance Facility has been launched. In the
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area of Science Technology and Innovation, the EU-AU partnership progressed on earth observation
thanks to the achievements of the Copernicus (previously GMES - Global Monitoring for Environment
and Security) programme, as well as the finalisation of an agreement with ASECNA (Agency for Air
Navigation Safety in Africa and Madagascar) for the implementation of the Satellite-Based
Augmentation System based on the European EGNOS technology.
With regards to the support to the private sector and investment climate, a Team Europe initiative
(TEI) called ‘TEI investing in young business in Africa’ has been launched with support from nine
Member States. The initiative focuses on supporting early-stage enterprises with business
development services and access to finance. Its pilot implementation will take place in five partner
countries.
In December 2021, the regional multiannual indicative programme (MIP) for Sub-Saharan Africa for
the period from 2021 to 2027 was adopted for an amount of EUR 10.2 billion.
West Africa
In West Africa, under Global Europe, the EU adopted
17 country multiannual indicative programmes
(MIPs) for a total of EUR 4 156 million,
planning EU cooperation in the concerned countries until
2027. In Mali, Senegal, Ghana and Togo, those programming documents were joint with Member
States, ensuring the full complementarity of all cooperation efforts. Overall, those translated into
12
annual action plans (AAPs) for a total of more than EUR 900 million of projects
adopted in 2021.
To work better together with Member States, the EU also designed a series of
Team Europe
initiatives (TEIs),
which will gather together collective efforts. Of the 34 prepared in West Africa, 32
focus on ‘Governance, peace and security’, ‘Green Deal’ and ‘Growth and jobs’.
In Niger for example, the
Générations futures
TEI will help developing Niger’s young human capital
and offer hope and perspectives in terms of jobs through support to private sector development and
investment. The TEI is supported by six Member States (France, Belgium, Luxembourg, The
Netherlands, Germany, Italy, and Spain) and the European Investment Bank (EIB). An indicative
budget amounting to around EUR 770 million euros (of which EUR 246 million is from the EU) has
been mapped for the implementation of the initiative.
The TEI sustainable cocoa aims at supporting the sustainable transformation of the cocoa value
chain. Cocoa is the most important agriculture sector in Côte d’Ivoire and also the main driver for
deforestation and forest degradation. By supporting sustainable agriculture practices and
agroforestry, as well as forest protection and rehabilitation, this TEI will contribute to the mitigation
of greenhouse gas emissions and adaptation to the adverse effects of climate change. This initiative
is particularly important because of the high level of convergence of EU-Cote d'Ivoire economic,
environmental and political interests (i.e., cocoa represents 15 % of Ivorian GDP and EU imports 67 %
of Ivorian cocoa).
At regional level, the migration TEI on the Atlantic/Western Mediterranean route, proposed by Spain
earlier in the year, was further developed. It rallied significant support from the EU and seven
Member States, nearing almost EUR 1 billion for the period 2021-2022. With the objective to ensure
that migration to the EU from Maghreb, Sahel and West Africa countries is safe, regular and orderly,
the initiative will mainly focus on migration management and migration governance actions putting
migrants, refugees and their host communities first.
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The regional TEI on vaccine manufacturing medicines and health technologies (MAV+) aims at
reinforcing African pharmaceutical and manufacturing capacity across the whole continent. It will do
this by focusing on production and manufacturing plants and creating the right ecosystem for
investment and access. TEI funds have been mobilised in West Africa, for Senegal, and recently in
Ghana.
Eastern and Central Africa
In Eastern and Central Africa, in addition to the ongoing implementation of substantial programmes
under the 11th EDF, including those to support the recovery following COVID-19, EUR 3.97 billion of
country multiannual indicative programmes (MIPs) were adopted in 2021, covering the period until
2027. To start the implementation, 13 new annual action plans (AAPs) were approved for a total
amount of EUR 946.5 million in 2021. Given the political and/or security situation in Ethiopia, Eritrea,
Guinea Equatorial and Sudan, no MIP and AAPs were proposed for adoption for these countries.
Preparation of AAPs for Gabon and Sao Tomé e Principe started, but for adoption in 2022. Most AAPs
focused on Green Transition, support to governance, peace and security, health and education.
Joint actions with Member States will be enhanced through 19 Team Europe initiatives (TEIs).
Examples include the ‘Alliance for sustainable development – a partnership for people, nature and
green economy’ in the DRC; the Congo TEI partnership for forests; the Kenya TEI green transition and
the TEI sustainable business for Uganda (SB4U).
Southern Africa and Indian Ocean
In the Southern Africa and Indian Ocean region, 2021 represented a mix of implementation of
ongoing actions and programming for the new multiannual financial framework (MFF). Few
commitments to new programmes were made. The programming exercise was informed by the main
challenges and opportunities which characterise the Southern Africa and Indian Ocean region.
In 2021, the main challenges in the region from an EU policy perspective were: minimising the impact
of COVID-19 (this region suffered most in Sub-Saharan Africa with a seven percentage point drop in
GDP in 2020), including exacerbating existing problems such as accumulated debt; fighting climate
change across the whole region; the violent insurgency taking place in northern Mozambique (Cabo
Delgado), with direct impact on Mozambique’s development trajectory and the risk of spill-over to
neighbouring countries; the persistent failures of governance and rule of law in Zimbabwe and
Comoros; and political instability in Eswatini and Lesotho.
The main opportunities lay in green growth, a priority in many countries; in investments in human
development with emphasis on education, and in support to good governance to continue building
institutions. Economic diplomacy has encouraged the broadening and deepening of Economic
Partnership Agreements in Eastern and Southern Africa (ESA), as well as a useful discussion on the
Review of the SADC (Southern Africa Development Community) EPA on important subjects such as
market access, business and investment climate. Finally, the EU Strategic Partnership with South
Africa continued to deepen and evolve. To address these challenges and seize the opportunity,
approximately EUR 2.2 billion of resources were allocated in the adopted country multiannual
indicative programmes (MIPs) for the period 2021-2027.
16 TEIs were launched to work more closely with Member States and achieve greater, joint impact.
Examples include the E-Youth programme in Mozambique that aims to put youth at the centre stage
of the country’s transformation through support to their education, employment and empowerment.
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The ‘just and green recovery for South Africa’ initiative will provide a visible and significant European
contribution to tackling the country’s socio-economic challenges, while enabling South Africa to
progress towards climate-neutrality. This Strategic Partnership focuses on addressing common
challenges such as climate change, reinforcing natural resources governance, and achieving the
SDGs. In Zimbabwe, gender equality has been identified as a key area where the EU and Member
States can bring added value and impact, building on existing achievements and focussing on the
social, political and economic empowerment of women.
During 2021, the EU strengthened partnerships with members of the SADC EPA Group, notably
Botswana, Eswatini, Lesotho, Mozambique, Namibia, and South Africa. National authorities prepared
EPA implementation plans, on which basis specific tailored projects are being implemented with EU
financial support. Angola continued internal SADC discussions in view of joining the EU-SADC EPA.
Similarly, the ESA EPA group of countries, namely Comoros, Madagascar, Mauritius, Seychelles and
Zimbabwe, continued working with EU financial support to broaden and deepen the provisions of the
EU-ESA EPA.
4.1.4. Humanitarian aid and civil protection – responding to the emergency needs of
people affected by conflicts and disasters
E
ASTERN
A
FRICA
Ethiopia
Throughout 2021 humanitarian needs in Ethiopia continued to increase across the country due to
ongoing-armed conflict, intercommunal violence, natural hazards, and disease outbreaks including
the impact of COVID-19. At the end of 2021, about 20 % of Ethiopia’s population (20 million people)
were estimated in need of emergency food assistance and over 5 million people were internally
displaced due to conflict, floods and drought. Following three failed rainy seasons, the southern and
south-eastern parts of the country were hit by a severe drought affecting over 6 million people.
Ethiopia hosts over 800 000 refugees (the third largest refugee population in Africa) who rely on
humanitarian assistance for survival. The conflict in Northern Ethiopia gave rise to massive
humanitarian needs in Tigray, Afar and Amhara. In Tigray alone, 5.2 million people (91 % of the
region’s population) needed urgent food assistance. Despite a background of restricted access, 9.4
million people were targeted for humanitarian assistance in areas impacted by the northern conflict.
With EUR 85.5 million in humanitarian funding, the EU helped provide rapid, life-saving humanitarian
responses to people affected by ongoing and continued conflict situations across the country;
delivering assistance to refugees, returnees, asylum-seekers and deportees; and supported
vulnerable people affected by natural hazards, including drought, floods, epidemic outbreaks and
pests. This included the support given to people affected by the Northern Ethiopia conflict in Tigray,
Afar and Amhara, as well as to Ethiopian Tigrayan refugees in Sudan.
South Sudan
In February 2020, South Sudan formed a transitional Government of national unity after six years of
civil war. Yet progress in the implementation of the peace agreement has been slow and the security
situation remained extremely fragile, compounded by lasting local ethnic conflicts, increasing youth
mobilisation, widespread violence and serious human rights abuses against civilians. The
humanitarian situation was catastrophic, with over 60 % of the population in need of humanitarian
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aid and the worst food crisis since independence. Record floods and the socio-economic impact of
COVID-19 further exacerbated this dire situation.
In 2021, the European Union mobilised EUR 81.3 million for humanitarian actions covering the
response to food insecurity, violence and floods across South Sudan. EU-funded projects provided
humanitarian protection assistance to displaced people and those affected by trauma and
widespread violence, in particular to children, women and girls given the extreme levels of violence
and the use of sexual violence as a weapon of war. The EU also continued to strongly support
principled humanitarian assistance and advocate for the protection of humanitarian workers and
their safe and sustained access to all parts of the country.
Sudan
2021 saw a major step back in the political transition process in Sudan with the military coup in
October and the de facto suspension of the transition. The continued political gridlock in the
aftermath of the coup led to a drastic reduction in the country’s financial capacity to respond to
growing needs, with potentially devastating consequences on the economy and people of Sudan. The
number of people in need of humanitarian assistance rose for the fifth year in a row to reach 14.3
million people (compared to 4.8 million in 2017) - one-third of the population.
In 2021, the EU mobilised EUR 65.04 million in humanitarian assistance to support the response to
the various humanitarian crises in Sudan. Specific budget was mobilised to address the deteriorating
food insecurity, to support the needs of the Ethiopian refugees fleeing the Tigray conflict, to respond
to chronic displacements caused by insecurity for civilians in West Darfur, and to support the COVID-
19 vaccination rollout. Between 2011 and 2021, the EU supported humanitarian action in Sudan with
around EUR 669 million. The overall humanitarian response in Sudan continued to address the most
critical needs in terms of food, shelter, emergency healthcare, access to clean water, education and
protection assistance.
Somalia
In 2021, humanitarian needs remained high in Somalia due to conflict, continued erratic weather
patterns and resulting severe drought due to several failed rainy seasons, the COVID-19 pandemic
and desert locusts. At the end of 2021, over 3.2 million people were already affected by the extreme
drought, and around 4.6 million people were expected to face food consumption gaps or depletion
of livelihood assets (at crisis level). Over 169 000 persons have been displaced directly due to the
drought effects, bringing the total number of displaced people in Somalia to almost 3 million
persons. The majority of those that have abandoned their homes are living in overcrowded camps or
urban areas, with limited access to basic services and dependant on humanitarian aid. In response,
the Commission allocated over EUR 59.5 million to Somalia in 2021, including EUR 18.5 million
allocated at the end of the year for emergency drought support.
Uganda
Uganda hosts the largest refugee population in Africa and the third largest in the world, mainly from
South Sudan and the Democratic Republic of Congo. The EU’s support is crucial to providing life-
saving humanitarian assistance to both refugees and host communities. Uganda is also vulnerable to
natural hazards and epidemics and the EU is supporting the country’s efforts to better anticipate and
respond to these events. In 2021, the EU allocated EUR 35 million in humanitarian aid to Uganda,
focusing on most immediate needs, including protection of new arrivals, water, sanitation hygiene
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and shelter, education in emergencies, and disaster preparedness. Uganda being one of the six pilot
countries for the humanitarian-development-peace nexus, humanitarian interventions seek to build
long-term developmental linkages in all targeted areas with the support of EU counterparts and to
support the country’s roll out of the Comprehensive Refugee Response Framework.
Kenya
Kenya hosts over 540 000 refugees, with many more thousands awaiting registration. Furthermore,
the Arid and Semi-Arid Lands in Kenya faced severe drought after three consecutive failed rainy
seasons, which lead to food insecurity for about 2.8 million people, alarming levels of malnutrition
especially among children under five years old, and an elevated risk of conflict over scarce pasture
and water resources. Humanitarian funding for Kenya in 2021 amounted to EUR 18 million, including
EUR 15 million for support to basic services in refugee camps, including COVID-19 vaccination rollout,
and EUR 3 million in emergency response to the ongoing drought in the Arid and Semi-Arid Lands
areas.
Burundi
Humanitarian needs remained high in Burundi mainly linked to structural problems, high poverty
rates and lack of access to basic social services. 2.3 million people – out of a population of 13 million
– needed humanitarian assistance, with COVID-19 further aggravating the situation. Almost 116 000
Burundians were internally displaced, mainly due to natural disasters such as flooding, landslides and
drought, and over 260 000 Burundian refugees remain in neighbouring countries. In 2021, the
Commission provided EUR 12.8 million in humanitarian funding, including support to disaster
preparedness and education in emergency projects.
W
ESTERN
C
ENTRAL AND
S
OUTHERN
A
FRICA
Sahel countries
The Sahel countries (Burkina Faso, Mauritania, Mali, Chad, Niger, Nigeria and Cameroon) are among
the poorest and the most fragile in the world facing recurrent emergencies, in terms of food,
nutrition and epidemics, and affected by increasing levels of violence and conflict. In 2021 the EU
responded to emergency humanitarian needs of the most vulnerable populations in these countries,
mobilising EUR 242.2 million to support multisectoral humanitarian interventions to the benefit of
over 7 million vulnerable people across the region. The emergency response in conflict areas
included support to rapid reaction mechanisms (a three-month multi sectorial emergency aid
package) and to existing national structures to maintain access to basic services. Moreover, EU aid
supported humanitarian access to hard-to-reach areas through humanitarian air services,
humanitarian civil-military coordination and security management.
In addition, as a response to the food and nutrition crisis induced by climatic conditions, poverty and
insecurity that was compounded by the socio-economic effects of the COVID-19 pandemic, the EU
provided food during the lean season and nutrition treatment for children suffering from severe
acute malnutrition and in need of life-saving treatment. While addressing immediate humanitarian
needs, the EU worked actively on implementing the humanitarian-development-peace nexus to build
the resilience of the affected population, reduce humanitarian needs and to address the root causes
of food insecurity and acute undernutrition.
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Democratic Republic of Congo
The Democratic Republic of the Congo (DRC) continued to face acute and complex humanitarian
crisis in a context marked by persistent conflict in the east and increased violence in several other
parts of the country. The COVID-19 pandemic affected economic growth while most Congolese were
already living in extreme poverty. Structural problems remained, including limited access to basic
services, insufficient public development, as well as deep gender inequalities. Armed conflict and
epidemics, such as yellow fever, cholera, measles and Ebola, and COVID-19, as well as natural
disasters, such as the volcanic eruption of Mount Nyiragongo and recurrent floods, continued to
cause large-scale displacement (5.5 million internally displaced people in total) and serious
protection concerns in the east. The country also continued to host refugees and asylum seekers
mainly from the Central African Republic. With 27 million people without access to adequate food,
DRC reported the highest food insecurity ever. The EU humanitarian funding for the DRC reached
almost EUR 71 million in 2021 to provide humanitarian aid to those most in need. The funding also
supported disaster preparedness action to strengthen the resilience of local populations and local
authorities against natural disasters.
Central Africa Republic
The Central Africa Republic is suffering one of the world’s most protracted crises. In 2021, 57 % of
the population – some 2.8 million people out of 4.9 million - needed humanitarian assistance, with
more than 1.4 million being displaced within the country or to neighbouring countries. Clashes
among armed groups and national forces led to new violence and criminality throughout 2021,
triggering further waves of displacement. COVID-19 aggravated the food insecurity in a country
already affected by a high prevalence of acute malnutrition. Primary healthcare, water and
sanitation, essential household items and shelter were among the most urgent needs, along with
access to education, in a country where 50 % of the children could not attend school and some 1 000
schools could not operate due to the activities of armed groups.
In 2021, the EU provided humanitarian aid to crisis-affected populations in Central African Republic
and to Central African refugees in the Democratic Republic of Congo, Chad and Cameroon, for a total
amount of EUR 22.5 million, focusing on the needs of the most affected populations, notably
providing food assistance and livelihood support, health, shelter, water, sanitation, and education in
emergencies, and reinforcing humanitarian coordination, security and logistics. In addition, the
Commission financed actions to protect civilians, including prevention of sexual violence, support to
victims, and actions offering a protective and educational environment for children at risk of forced
recruitment, abuse and violence. EU-funded projects also helped respond to the health crisis caused
by the pandemic, in particular by providing access to clean water and sanitation for vulnerable
people.
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 man-made hazards 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 humanitarian assistance. In 2021, the EU allocated over EUR 52.5 million to the region,
focusing on emergency relief response such as food/nutrition assistance, protection, access to
healthcare, education in emergencies, water and sanitation and disaster preparedness. This funding
included an envelope to address the acute levels of food insecurity in the region specifically in
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Angola, Eswatini, Lesotho, Madagascar, Mozambique and Zimbabwe. It also included support to the
roll-out of the COVID-19 vaccination campaigns in Botswana, Lesotho, Madagascar, Malawi,
Mozambique, South Africa and Zimbabwe.
Mozambique
The armed conflict in Cabo Delgado Province, Northern Mozambique further escalated in 2021 and,
as a result of the violence, nearly 700 000 people were internally displaced and 1.3 million people
were in need of emergency assistance and protection. The EU provided assistance to conflict-
affected populations, including internally displaced people and their host communities, providing
shelter, protection assistance, basic items to ease their daily life; functional water and sanitation
systems; and education in emergencies. The EU also supported disaster preparedness actions in
schools through safe learning facilities, training of teachers in early warning and teaching children
how to stay safe. Building on lessons learned during the 2019 floods, continued support was
provided on strategic emergency stock prepositioning, to facilitate and speed up the response to
natural hazards. In 2021, the EU allocated EUR 17 million to Mozambique, of which EUR 16.5 million
was for the Cabo Delgado crisis.
Madagascar
In Madagascar, more than 1.3 million people faced acute levels food insecurity and about 28 000
were at risk of famine. The EU support helped assist the most vulnerable families with adequate food
assistance and nutrition services to children below the age of five. In addition, the EU continued its
engagement in the sector of education in emergencies and disaster preparedness. The EU allocated
EUR 12 million to respond mainly to the food insecurity and nutrition emergency needs.
Zimbabwe
In Zimbabwe, 3.4 million people in rural areas and 2.4 million people in urban areas face high levels
of acute food insecurity. The country also reported a steady influx of refugees from across Africa,
hosting more than 20 000 refugees. In 2021, the EU allocated EUR 11 million in humanitarian
assistance to mainly address the food shortages in the country and to support education in
emergencies, disaster preparedness and the identification of the underlying, complex and
interrelated causes of displacement.
Cameroon
During 2021 the EU continued discussions with Cameroon (Member of EU-Central African EPA) in
view of completing the implementation of the Economic Partnership Agreement.
4.1.5. Crisis response and preparedness
With seventeen new crisis response actions related to
sub-Saharan Africa
launched in 2021 under
the NDICI-Global Europe, the EU responded to the numerous crises in the region.
During the year, the conflict in
Tigray
was the focus of new actions in both
Ethiopia
and
Sudan.
Similarly, a crisis response action was set in motion to support stability in Darfur in connection with
the scaling down of the joint AU-UN mission (UNAMID) in the region. In the
Central African Republic,
EU efforts to relaunch the peace process continued and were supplemented by actions focusing on
human security, conflict prevention and stability. In response to violent conflict in the east of the
country, a new NDICI-Global Europe crisis response action focusing on support to stability in the
Democratic Republic of Congo
was adopted in December 2021.
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In the
Sahel,
several new crisis response actions were adopted to address the deteriorating situation
in numerous countries in the region, including support for the UN-led ‘civilian surge’ in follow up to
the February 2021 N’Djamena G5 Sahel Summit, as well as support to mediation and dialogue in
Chad,
to stabilisation and social cohesion in
Niger
and support to the transition to civilian rule in
Mali
following the 2020 coup (the latter being severely challenged by the May 2021 coup).
Furthermore, NDICI-Global Europe crisis response actions were mobilised to contribute to the
promotion and protection of children’s rights in the conflict affected region of
Cabo Delgado in
Mozambique.
In
Cote d’Ivoire,
the EU supported youth leadership as well as social cohesion during
the post-electoral transition process, while in
Kenya
efforts to reduce the risk of violence in
connection with the forthcoming elections were supported. In
Senegal,
progress in the resolution of
the Casamance conflict was supported as were efforts by Nigerian actors to protect civilians and to
engage former combatants and associates of insurgent groups and reintegrate them into their
communities. In
Somalia,
an innovative crisis response action focusing on reduction of climate-
induced conflict and on climate sensitive reconciliation was adopted in December 2021.
The
European Union Capacity Building Mission – EUCAP Sahel Mali,
in close cooperation with the
Malian authorities, aimed to restore and maintain constitutional and democratic order and the
conditions for lasting peace. It also aims to restore and maintain State authority and legitimacy
throughout the territory of Mali by means of an effective redeployment of its administration. EUCAP
Sahel Mali also contributed to the improvement of interoperability and coordination between the
internal security forces of Sahel G5 countries and the Malian Internal Security Forces. The Mission
was launched in 2014 and has now been extended to 31 January 2023.
The
Regional Advisory and Coordination Cell (RACC),
embedded within EUCAP SAHEL Mali and in
close cooperation with existing CSDP Missions in the Sahel region, improved the cooperation and
coordination between the G5 Sahel structures and G5 Sahel countries to enhance regional
cooperation and operational capabilities in the field of defence and security.
The
EU Special Representative (EUSR) for the Sahel’s
mandate, now extended to 31 August 2022,
contributed actively and gave priority 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
European Union Capacity Building Mission – EUCAP Sahel Niger
enabled the Nigerien
authorities to develop the necessary strategic frameworks, further operationalise existing strategies
and contribute to the development of an integrated, multidisciplinary, coherent, sustainable and
human-rights based approach among the various Nigerien security actors in the fight against
terrorism and organised crime. The Mission also assisted the Nigerien central and local authorities
and security forces in developing policies, techniques and procedures to effectively control and
tackle irregular migration. The Mission was launched in 2012 and is now extended to 30 September
2022.
The
European Union Advisory Mission to Central African Republic – EUAM RCA
aims to support the
establishment of rule-based governance and management capacities within the Ministry for Interior
and Public Security of the Central African Republic, the sustainable transformation of the Central
African Republic's Internal Security Forces and their operational effective functioning and
deployment.
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The
European Union Capacity Building Mission in Somalia – EUCAP Somalia
works to enhance
Somali maritime civilian law enforcement. In particular 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.
Due to the ongoing COVID-19 pandemic, 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, a
strengthened epidemiology response and enhanced capacity of public health laboratories to produce
reliable test results and establish quality management systems.
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4.2.
Asia and the Pacific
4.2.1. East Asia and South Asia
4.2.1.1. Introduction (policy developments)
2021 saw the launch of the EU’s new policy framework in relation to the region, the EU strategy for
Cooperation on the Indo-Pacific, marking an increased engagement to maintain a free and open
Indo-Pacific for all while building strong and lasting partnerships. The strategy identifies seven
priority areas: sustainable and inclusive prosperity; green transition; ocean governance; digital
governance and partnerships; connectivity; security and defence; and human security.
In 2021, despite the continuing challenges posed by the COVID-19 pandemic, the EU managed to
maintain strong connections with key strategic partners. After two postponements, the 13th Summit
of the
Asia-Europe Meeting (ASEM13)
took place virtually on 25-26 November in Phnom Penh,
under the title 'Strengthening Multilateralism for Shared Growth’. 45 Heads of State and
Government discussed the two main themes of the Summit: ‘ASEM’s Role in promoting
Multilateralism ’and ‘COVID-19 and Socio-Economic Recovery and Development’. They reached
agreement on significant topics: post-COVID-19 recovery, multilateralism and connectivity. An
EU-
Japan Summit
was held (by videoconference) marking the signature of a Green Alliance to protect
the environment, fight climate change and achieve green growth. Taking stock of their deepening
partnership, the
EU and Japan have increased security and defence cooperation
under the Strategic
Partnership Agreement. In October, the EU’s Operation Atalanta Combined Joint Task Force 465 and
Japan held a trilateral naval exercise with Djiboutian forces in the Gulf of Aden and a joint port call in
Djibouti. Such exercises follow the launch of the EU strategy for cooperation in the Indo-Pacific,
which calls for increased joint activities to uphold maritime security in the region.
The EU further strengthened its strategic partnership with
South Korea
by enhanced security
cooperation as well as significant progress towards a new digital partnership. The EU’s Chief of
Defence, General Graziano, visited South Korea for the first time with the aim of further intensifying
military-to-military links. In December, the Commission adopted an adequacy decision ensuring safe
data flows between the EU and South Korea.
The
EU-India Leaders’ Meeting,
which took place in a hybrid format, endorsed the resumption of
negotiations towards a Free Trade Agreement as well as the launch of negotiations on agreements
on investment protection and geographical indicators. After eight years, India and the EU resumed
their Human Rights Dialogue in April.
Throughout 2021, the EU’s multi-faceted approach remained the basis for relations with
China.
Despite challenges, 2021 saw pragmatic and principled engagement remaining the cornerstone of
the EU approach, notably in addressing global and regional challenges. For instance, China supported
a successful COP26 in Glasgow and hosted the first part of the COP15 (biodiversity) in Kunming.
The EU High Representative for Foreign Affairs and Security Policy/Vice President of the European
Commission Josep Borrell and Executive Vice-President of the European Commission for the Green
Deal, Frans Timmermans, visited
Indonesia
and
the ASEAN Secretariat
in 2021. During his visit, the
HRVP and ASEAN Secretary General, Dato Lim Jock Hoi, and the ASEAN Committee of Permanent
Representatives discussed how to further the EU-ASEAN Strategic Partnership and address shared
challenges.
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2636519_0089.png
The EU continued to work with
Thailand
on a Partnership and Co-operation Agreement (PCA), while
discussions on a Partnership Cooperation Agreement with
Malaysia
and negotiations with
Australia
and
New Zealand
on Free Trade Agreements advanced well.
In
Bangladesh,
the EU continued its engagement on the humanitarian challenge caused by the
Rohingya crisis through advocacy and promotion of further support, as well as its work on
strengthening compliance with labour and human rights in the framework of the Everything But
Arms (EBA) unilateral trade preferences. At the biennial Diplomatic Consultations in Brussels in
October, it was agreed to step up cooperation on climate action, digitalisation and connectivity. In
Sri
Lanka,
the EU continued engaging with the authorities on human rights, reconciliation and justice
reform. The EU Generalised System of Preferences Plus (GSP+) monitoring mission to the country
reviewed the progress in implementing the international conventions applicable under this
agreement. Sri Lanka also committed to reform the Prevention of Terrorism Act to bring it in line
with international norms within a time bound process. In October 2021, an EU-Nepal Joint
Commission took Place in Kathmandu.
The EU continued to promote peace and security in Asia and the Pacific in the difficult context of the
takeover of
Afghanistan
by the Taliban in August 2021. The Council Conclusions on Afghanistan
adopted by EU Foreign Ministers in September 2021
93
laid down the benchmarks of engagement
with the de facto Taliban authorities and called for humanitarian access and safe passage, as well as
inclusive governance. The EU continued to closely follow issues of human rights and fundamental
freedoms, and especially women’s rights, and sought to protect and support civil society, including
Human Rights Defenders and Afghans at risk of reprisals. The President of the European Commission
announced in October 2021 a support package in solidarity with the people of Afghanistan, worth
EUR 1 billion, channelled via UN agencies and non-governmental organisations.
The EU continued to implement the EU-Asia Connectivity strategy and contributed to the preparation
of the Global Gateway Joint Communication
94
. It signed a Connectivity Partnership with India in May.
The EU also concluded negotiations on the Comprehensive Air Transport Agreement (CATA) with
ASEAN countries. It advanced discussions on digital partnerships between the EU and Japan,
Singapore and South Korea.
In February, following the staging of a military coup in
Myanmar/Burma,
the Council swiftly
condemned the military junta. The EU imposed sanctions on the Tatmadaw that were prolonged in
April and expanded throughout 2021. The EU has also provided financial assistance to support
humanitarian and disaster preparedness in the country. In November, the EU deployed an Election
Expert Mission for the general elections. In March, an EU-Cambodia Joint Committee took place. As
discussed in the Joint Committee, the EU temporarily withdrew EBA trade preferences from
Cambodia due to serious human rights concerns. However, the EU remains open to engage Phnom
Penh on necessary reforms.
4.2.1.2. Working together towards the SDGs
Throughout Asia, the EU continued to promote environmental and human rights and due
diligence/responsible business conduct (RBC) in supply chains through multilateral partnerships with
93
Council Conclusions 11713/2/21 of 15 September 2021.
94
JOIN(2021) 30 final of 1 December 2021.
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the ILO, UNDP and OECD and important EU’s partner countries (China,
India, Indonesia, Japan,
Myanmar, Mongolia, Philippines, Sri Lanka, Thailand, and Vietnam).
Encouraging the uptake of
international RBC and labour standards as well as other core conventions among policymakers and
the private sector in Asia aims to level the playing field for businesses that integrate environmental
and human rights considerations into their operations and supply chains (SDG 8 and SDG 12).
EU budget support in
Cambodia
also contributed to social protection, with the identification of 250
000 people living with disability thanks to a model developed under this programme. The model also
helped to give access to COVID-19 vaccinations to those identified (SDG 1 and 3).
The EU is contributing to SDG 14 and 16 with a programme in the Fisheries sector in Cambodia. In
2021, 45 000 fishing operations were inspected at inland fisheries with 60 % of the fishing gear found
to be illegal and 1 260 fishing vessels in marine fisheries were also inspected with 24 % of the fishing
gear observed to be illegal. Increased patrolling has led to a reduction of illegal fishing activities,
contributing to sustainable and inclusive growth in the fisheries sector.
In terms of SDG 4 (Quality education), under the Cambodia Education Budget Support programme
funded by the EU, the percentage of five year olds accessing any form of preschool education
increased around 10 percentage points, with the percentage of girls enrolled increasing to the same
level as boys.
Furthermore, through the Erasmus+ programme the EU supports higher education cooperation and
mobility opportunities in East Asia and South Asia. During the period 2014-2020 there were 30 000
short-term mobilities in both ways, 3 384 Erasmus Mundus scholarships to Asian students, and 272
capacity-building projects and 57 Jean Monnet projects with higher education institutions in the
region.
In 2021 though there were exceptionally only 2 Erasmus+ calls opened for the region: over EUR 350
000 have been awarded to the 6 Jean Monnet Modules, 5 Chairs and 1 Centers of Excellence selected
from China, Korea, India, Mongolia, Singapore, and Taiwan. There were also 3 full partners and 29
associated partners to Erasmus Mundus Joint Masters from East and South Asia, while 796 students
received Erasmus Mundus scholarships (with India, Pakistan and Bangladesh in the top-5 of global
recipients).
As for
Myanmar,
the coup d'état of 1 February 2021 brought a sudden halt to the democratic
transition the country had engaged in over the last decade. In line with the EU Foreign Affairs Council
(FAC) Conclusions of February 2021, all development cooperation activities that could support or
legitimise the military authorities were put on hold. After a careful review of the development
assistance portfolio, the Commission moved to a ‘back to basics’ approach focused on supporting the
people, civil society and the most vulnerable communities and thus minimising losses on
achievements made towards the SDGs following the coup d'état.
The year 2021 marked the adoption of the Team Europe strategy (TES) 2021-2025 in
Laos,
a joint
intervention strategy which replaces the multiannual indicative programme (MIP) and which fully
takes into account the SDGs. In 2021 the EU Delegation in Laos supported the implementation of two
important budget support programmes in the field of nutrition and education, which contributed to
the achievement of SDG 2 and SDG 4. Thanks to EU budget support, Laos made important regulatory
changes to protect and promote breastfeeding (SDG 2) and to raise the net primary school
enrolment rate to 99 %, hence achieving universal access to primary education (SDG 4).
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In
Indonesia,
the multiannual indicative programme (MIP) 2021-2027 adopted in 2021 will be
implemented through a Cooperation Facility which foresees, among other aspects, extensive
dialogue on policy commitments to deliver the SDGs. More broadly, it is foreseen that all the
activities implemented under the Cooperation Facility will be aligned with the 2030 Agenda and the
SDGs.
The SDGs are at the core of the EU-Vietnam partnership. In 2021, the EU Delegation continued to
contribute to the implementation of SDGs both through implementation of programmes and policy
dialogue, notably on sustainable energy and governance and rule of law as EU focal sectors for
development cooperation. In that context, budget support programmes on energy are contributing
to SDG 7 (Affordable and clean energy) and SDG 13 (Climate action) and programmes like the Access
to Justice and Legal Empowerment (EU JULE) are contributing to SDG 16 (Peace, security and strong
institutions), together with additional thematic support channelled through civil society organisations
(CSOs).
The EU-India Leaders’ meeting resulted in the EU and
India
further reiterating their commitment to
advance the implementation of the actions set out in the EU-India Roadmap 2025 and agreement to
foster new synergies for jointly contributing to a safer, greener, cleaner, resilient and multi-polar
world. In India, support to implementation of SDGs is at the core of the sustainable modernisation
agenda funded by the EU. Two new actions focusing on air quality management and enhancing
cooperation with the International Solar Alliance directly contributed to ensuring progress in the
context of SDG 7 (Affordable and clean energy), SDG 13 (Climate Action) and SDG 17 (Partnerships
for the goals). Ongoing actions in the fields of renewable energy, resource efficiency, circular
economy, sustainable urban development and health resilience also consolidated support to the
implementation of SDGs 3, 7, 11, 13 and 17.
During 2021, extensive consultations took place with relevant stakeholders in preparation of the new
EU-Vietnam multiannual indicative programme (MIP) 2021-2027, which was formally adopted in
December 2021. The Vietnam SDG action plan was taken as the strategic basis for the programming
together with the new 2021-2030 Socio-economic Development strategy (SEDS) and the 2021-2025
Socio-Economic Development plan (SEDP).
Following a broad range of consultations, the new multiannual indicative programme (MIP) 2021-
2027 for the
Philippines
was adopted in 2021 focusing on continuing the long-term support in
Mindanao, good governance, circular economy and digitalisation. Despite a challenging environment
due to the pandemic, the EU maintained an effective dialogue with the Government and other
stakeholders. The first Sub Committee on EU-Philippines Development Cooperation in April 2021
built on the current better relations with the Government and there was an exchange on
opportunities for current and future cooperation.
The EU continued to work with Thailand and Malaysia on a Partnership and Cooperation Agreement
(PCA). Negotiations with Thailand and Malaysia advanced with the EU supporting bilateral policy
dialogue in key areas of partnership under the PCA including trade, climate change, biodiversity, and
security, through the EU-Malaysia PCA Facility.
The EU is a longstanding supporter of the Education sector (SDG 4) in
Bangladesh, Pakistan
and
Nepal.
In Bangladesh for example, the EU supports the Fourth Primary Education Development
Programme of the Government contributing to substantial progress in enrolment and school
attendance rates, reduced dropout rates and better survival rates to grade 5. In Nepal, the EU
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supports the School Sector Development Plan (SSDP) of the Government contributing to improved
management and service delivery in the education sector.
In
Pakistan,
the first tranche of budget support (EUR 20 million) was disbursed by the end of 2021 in
support of the Education sector in Sindh. This payment, which was also part of the COVID-19 crisis
package, supports universal access to quality education in this province. The Financing Agreement
supporting the second phase of the Education Support Programme in Balochistan was signed in 2020
and allowed the programme to start in April 2021 with a view to consolidate improvements in
governance and management reached under the first phase of the programme.
In
Bangladesh,
the Global Climate Change Alliance Plus (GCCA+) Local Government Initiative for
Climate Change (LoGIC) established a mechanism to bring climate change financing to local
government and community levels (SDG 13). EUR 6.7 million was added to the project.
Reduction of inequalities (SDG 10) is also at the heart of EU interventions. In Bangladesh, EU budget
support has provided resources to support the Government’s food, nutrition and cash transfers
programmes for poor and vulnerable households, with a view to reducing poverty and eliminating
malnutrition. The EU support also contributed to significant progress in the Food and nutrition policy
framework and strategic plans and better implementation by line ministries of multi-sectoral
approaches to tackle malnutrition.
In
Nepal,
EU contributes through budget support to the implementation of the Multi-Sector Nutrition
Plan (SDG 2). The Plan is now implemented in all provinces of Nepal to improve maternal, adolescent
and child nutrition.
During 2021, the EU Budget Support Programme on Rural Development and Climate Change
Response (RDCCR) in
Bhutan
was successfully concluded. The programme supported the Renewable
Natural Resource sector that is considered extremely important in achieving SDG 1 (No poverty), SDG
2 (Zero hunger) and SDG 13 (Climate change).
Last but not least, in all
South Asian
countries particular attention is given to the advancement of
democracy, rule of law, human rights and civil society (SDG 16 and 17). In
Sri Lanka,
the EU
contributes to the resolution of critical underlying causes of conflict and prevention of escalation of
local disputes. In the
Maldives,
a technical assistance project to support justice reform and anti-
corruption efforts was launched as a pilot to pave the way to a wider rule of law programme under
the 2021-2027 MIP.
In
Bangladesh,
two new projects were launched 2021 to promote gender equality, women's rights
and the fight against sexual and gender-based violence in public and the workplace (SDG 5).
In the field of Justice (SDG 16), in Bangladesh, the EU supports the semi-formal justice system by
making the national Village Courts structure functional in over 1 000 Union Councils (Union Parishad-
UP) out of a total of 4 500 nationwide. These have provided efficient and effective legal services to
more than 230 000 people in rural areas, including women and vulnerable populations. A new phase
was launched 2021 also covering the formal justice system.
4.2.1.3. Implementation
To implement the principle of policy and foreign policy driven cooperation, the EU has put in place a
series of Policy Dialogues Support Facilities in Asia/Pacific aiming to follow up on a significant number
of dialogues and bilateral agreements and to pave the way to possible future stand-alone actions.
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The facilities seek to advance partnerships under the multilateral sphere and to achieve goals set out
in the EU Indo-Pacific strategy. In 2021, such facilities were in place in
Japan, South Korea, Vietnam,
Indonesia, Malaysia, Singapore, China and India,
and new ones were recently adopted for
Australia,
New Zealand, Brunei, Taiwan and Hong Kong.
However, while collaborations and exchanges with the EU are increasingly being promoted as they
attract many partners, a key challenge across the EU’s work is disinformation and disruptive
influences, including narratives relaying untruthful messages about the EU. In this regard, the public
diplomacy and policy outreach work carried out with the EU Delegations and local partners has been
key to raise awareness in the region of the EU’s commitment to the sustainable transformation of
the planet, and as a key academic, scientific, security, economic and political partner for populations
and governments alike. In 2021, Public Diplomacy projects were active in
China, India, South Korea,
Vietnam, Singapore, Malaysia, the Philippines, Thailand and ASEAN.
New funds for public
diplomacy action to start in 2022 were approved in 2021 for
Japan, Australia, New Zealand, Brunei,
Taiwan and Hong Kong.
In the
Philippines,
two financing agreements related to agriculture value chains in Bangsamoro and a
National Copernicus Support Action programme were signed in December 2021. A large part of the
programmes under the 2014-2020 MIP, amounting to EUR 216 million, were signed in the second
half of 2020 and started implementation in 2021.
In
Myanmar,
a special measure under NDICI-Global Europe (EUR 65 million) for the period 2021-2024
was adopted in December 2021 to contribute to peace and resilience building, education and skills,
and sustainable livelihoods, as well as overall democracy and human rights efforts. Additional
support was also mobilised to support Myanmar nationals, notably along the Thai-Myanmar border
as a region with large numbers of IDPs and refugees.
In
Vietnam,
two Financing Agreements were signed in December 2021: the EU-Vietnam Sustainable
Energy Transition programme (SETP, EUR 142 million); and EU-Vietnam Enhancing Economic
Governance programme (EEGP, EUR 18 million).
The first Trade and Sustainable Development Committee under the new EU-Vietnam Free Trade
Agreement took place in November with active engagement of the Domestic Advisory Group (DAG) –
an independent group of civil society organisations established in August 2021.
In
Laos,
the allocation of the multiannual indicative programme (MIP) 2014-2020 (EUR 203 million)
has been fully committed with one last contract of EUR 4.5 million to be signed in 2022. This
represents a very positive achievement only one year after the end of the 2014-2020 programming
cycle.
2021 was marked by the successful conclusion of the programming process and the adoption of the
MIP 2021-2027 for
Indonesia
as well as the annual action plan (AAP) for a Cooperation Facility, which
will be contracted in 2022 and will be the main instrument to support policy dialogue, strategic
communication and public diplomacy as well as technical assistance for the Green Agenda in
Indonesia. Two new projects have also been contracted in 2021, reinforcing the EU’s action in
priority areas such as the green transition and the response to COVID-19.
The main achievement for
South Asia
in 2021 was the adoption of the MIPs for Bangladesh, Bhutan,
Nepal, Pakistan, Sri Lanka and, for the first time since the last MFF, the Maldives.
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AAPs for 2021 were adopted for
Bangladesh
in the areas of social protection and justice, Nepal in
green growth, women empowerment and WASH, Sri Lanka in social cohesion and green policy, and in
Bhutan to support agri-food systems.
The
Regional MIP
was also adopted and includes specific objectives and funds for
India
as well as for
South Asia regional integration,
with strong potentials for the implementation of the EU Indo-Pacific
strategy and Global Gateway. A first measure for
India
was also adopted to contribute to
strengthening cooperation in strategic areas including climate change, clean energy, trade and
investment, business cooperation, innovation and digitalisation.
The validity of the 2019 Strategic Outlook on
China
was reaffirmed, in which China is described
simultaneously as partner, competitor and rival. Despite severe setbacks in overall EU-China
relations, cooperation on global issues, notably in multilateral frameworks, has been positive,
notably for COP15 (biodiversity) in Kunming and COP26 (climate action) in Glasgow. The EU and
China continued to actively cooperate on the topics of green economy, sustainable urban
development, universal social protection and more. Three new contracts signed in 2021 will support
the ongoing cooperation on emissions trading, as well as aviation partnership and intellectual
property rights.
Budget support programmes in the region continued to deliver fiscal space to help countries in the
region deal with the economic impact of the pandemic. Country MIPs were adopted across the
region with a strong focus on livelihoods. The adoption of the
Bhutan
AAP on Sustainable Agri-Food
Systems will contribute to nutritional security and diversified food production (through budget
support). New commitments via AAPs were made to support jobs and private sector development
and income in
Bangladesh
and
Pakistan.
In 2021, the EU and
India
signed a Connectivity Partnership which sets an ambitious political agenda
for pursuing connectivity across a range of sectors in India and with third countries. Implementation
of the Accelerating Smart and Inclusive Infrastructure Services partnership with the International
Finance Corporation (IFC) commenced in late 2021, which aims to generate almost USD 1 billion of
infrastructure in South Asia across various sectors. The blending pipeline continued to be built in
2021 with the addition of the CITIIS2 project with AFD and the global energy efficiency programme
(DESIREE) with the European Investment Bank (EIB) with India one of the core partners.
In 2021, the EU in
Bangladesh
paid budget support instalments for a total of EUR 75 million, after a
positive review of progress in the Primary education and TVET sectors, and the National Social
Security strategy. This includes the disbursement of EUR 33 million for social protection in the
context of the Team Europe COVID-19 response.
In
Nepal,
the EU paid budget support instalments to support the Multi-Sector Nutrition programme,
School Sector Development programme, Provincial and Local Governance Support programme and
Agriculture Development strategy.
In
Pakistan,
the development cooperation continued to support socio-economic recovery in 2021 by
strengthening macroeconomic resilience and stability, in particular in the context of the COVID-19
crisis. The EU disbursed EUR 20 million under the Development through Enhanced Education
programme (DEEP) in the province of Sindh in support of efforts to roll out the Sindh Education
Sector plan and roadmap 2019-2024. Another milestone was the signature of the Financing
Agreement and subsequent contribution agreement of EUR 50 million for the Poverty Alleviation and
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Inclusive Development in Rural Sindh (PAIDAR) project. All but one contract implementing the MIP
2014-2020 in Pakistan are now contracted.
Implementation of the
Accelerating Smart and Inclusive Infrastructure Services
partnership with IFC
commenced in late 2021, which aims to generate an almost USD 1 billion of infrastructure in South
Asia across various sectors.
Sri Lanka
and the
Maldives
continued to face challenges due the COVID-19 pandemic. In Sri Lanka,
two programmes were adopted to support green recovery and social cohesion and reconciliation.
In
South Asia and South-East Asia, gender equality
was mainstreamed in cooperation portfolios and
country level implementation plans were delivered. Nepal was one of the winners in the GAP III
Awards 2021.
The EU also cooperated with some of the most important and influential High-Income Countries in
the world, such as
Japan, South Korea, Singapore, Australia and New Zealand,
on bilateral issues of
mutual interest, on global and regional challenges and on multilateralism, based on existing or
prospective framework agreements.
EU projects have continued to be instrumental for the achievement of EU policy objectives in
Japan
in a wide range of policy areas including trade policy, urban development and several strategic
dialogues such as security and defence, connectivity, environment and energy. EU action has been
particularly effective in accompanying the second year of implementation of the EU-Japan Strategic
Partnership Agreement (SPA) and the EU-Japan Economic Partnership Agreement (EPA). At the end
of 2021, a new action was approved to support the EU/Japan Connectivity Partnership.
In
South Korea/Republic of Korea (ROK),
EU projects played an important role in promoting the
image of the EU and facilitating a dialogue-based cooperation. The EU-ROK Policy Dialogue Support
Facility started operations in 2021 and supported the celebration of the 10th anniversary of the EU-
ROK Free Trade Agreement by producing a short film on the very tangible benefits the agreement
has brought to citizens in the EU and in South Korea. EU projects also assisted with outreach
activities on the EU’s newly adopted Indo-Pacific strategy and in identifying substantive cooperation
opportunities. Projects engaged with civil society organisations, local authorities as well as youth and
business representatives on key EU priorities including the green transition, human rights, and
market access in South Korea’s offshore wind power industry.
In
Australia and New Zealand,
the EU continued to support the ongoing negotiation of Free Trade
Agreements (FTAs) through action monitoring and analysing the Australian and New Zealand trade
and economic-related legislations and regulatory frameworks. In addition, new action was recently
adopted to support broad policy dialogues (and public diplomacy action) with these two likeminded
countries, as of 2022. Similar policy dialogues and public diplomacy facilities have recently been
adopted under NDICI-Global Europe also for high income territories such as
Taiwan and Hong Kong.
Besides bilateral projects, the EU has been very active on policy driven regional and multi-country
actions in support of EU flagship strategies and strategic objectives (notably green transition, plastics,
climate change, security, anti-microbial resistance supply chains and waste management).
By engaging various key partner countries under single thematic actions, the EU enhances the
potential and reach of its messages on environmental, climate, social, security and trade challenges
and promotes wider collaboration and exchanges based on good practices. This in turn inspires and
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motivates other countries to initiate substantive policy changes to align with the required efforts
needed to transform key economic and social sectors.
For instance, EU action on eliminating illegal waste trafficking (Malaysia,
Thailand, Indonesia and
Vietnam)
and addressing plastic marine litter (China,
Indonesia, Japan, the Philippines, Singapore,
Thailand and Vietnam)
is pioneering new concepts, developing cooperation with EU enforcers and
pushing for the reaction of national authorities and regional stakeholders and the responsibilities of
producers across Asia, with an overall aim to support the transition to a more circular economy in the
region.
The EU’s global campaign on sustainable use of natural resources and against deforestation is being
operationalised through multi-sectoral engagement with
Malaysian and Indonesian
counterparts
towards sustainable production of palm oil.
Action on Food Safety measures supports dialogues on significant barriers to market access in Asia
(China,
India, Indonesia, Japan, Malaysia, Philippines, South Korea, Thailand and Vietnam)
and
develops practical guidance for EU producers to increase EU trade of vegetables, fruits and meat in
Asia and enhance the understanding of EU rules and regionalisation.
Local and decentralised cooperation through partnership between EU and Asian and Pacific cities, as
well as the internationalisation of local climate actions through the Global Covenant of Mayors has
gained recognition for the substantive outputs they provide to link national determined
contributions to global emission reduction and sustainability targets.
The extension of civil aviation partnerships to all regions of Asia - South, Southeast and East - also
illustrate the growing interest in aligning on standards and protocols where the EU is leading.
Particular attention is also paid to working with partners in Southeast Asia on the reduction of
emissions from civil aviation by assisting them with Carbon Offsetting and Reduction Scheme for
International Aviation (CORSIA) preparedness.
At the end of 2021, a partnership was signed between the EU and the Tripartite on Antimicrobial
Resistance (AMR) (WHO/FAO/OIE) to implement, in cooperation with nine countries in Asia (China,
Japan, India, Indonesia, Malaysia, the Philippines, South Korea, Thailand and Vietnam),
the
European One Health action plan against AMR contributing to the achievement of the WHO Global
action plan on AMR and promoting alliances in Asia on future pandemics preparedness. In addition,
the EU worked jointly on identifying preventive and science-based solutions against future wildlife-
related pandemics in close collaboration with key partner countries in the region (China,
Laos,
Thailand and Vietnam)
and the UN illustrating how projects can effectively foster the EU’s action on
multilateralism.
On gender, the EU supports a multi-country project (China,
India, Indonesia, Malaysia, the
Philippines, Thailand and Vietnam)
on women’s economic empowerment.
Lastly, ties with key partners in the Asia-Pacific region are being strengthened in the security sector
by operationalising practical collaboration in the fields of cyber security, maritime security, crisis
management and countering terrorism (Vietnam,
Singapore, Japan, South Korea and India).
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C
ASE STUDIES
Cambodia
With the COVID-19 pandemic, schools have been closed for long periods of time, leading to a
learning crisis among children, while at the same time, many Cambodians have lost their jobs and
incomes. In response to this, the EU has engaged in social protection measures targeting those
households and workers most severely hit by the pandemic. The EU has also advanced discussions on
the development of social protection schemes for informal economy workers and employment for
people living in situations of vulnerability. The Social Protection Budget Support programme, which
was formulated at the start of the COVID-19 pandemic, aims to strengthen social protection systems
for the poor, in particular during crisis situations.
In response to protracted school closures, the EU education programme in Cambodia has been
instrumental in the COVID-19 mitigation response focusing on the inequalities compounded by
COVID-19, such as an increase in the number of children dropping out of school and poor learning
outcomes. Thanks to the support from the EU, the Cambodian Government has been able to offer
initiatives such as scholarships to up to a quarter of a million basic education students per year. The
EU’s education programme in Cambodia has also helped to increase operating funds for schools and
build 750 new ‘healthy’ (with bathrooms and handwashing facilities) and climate-resilient
classrooms. These initiatives are key for a sustainable and inclusive socio-economic recovery post-
COVID-19.
Bangladesh
During 2021, the EU supported public finance management (PFM) interventions such as the World
Bank implemented Multi-Donor Trust Fund ‘Strengthening Public Expenditure Management
programme (SPEMP)’ and the EU PFM technical assistance, which were instrumental in further
strengthening Bangladesh’s PFM systems and recovery from the pandemic. With support from
SPEMP, the implementation of the roadmap to secure an Integrated Budget and Accounting System
(iBAS++) is underway and a functional gap analysis of iBAS++ has been finalised. The programme also
supported the development of a Medium-Term Revenue strategy (MTRS) and a tax expenditure
analysis. Finally, SPEMP is supporting the Public Expenditure and Financial Accountability (PEFA+++)
assessment which was launched in October 2021.
India
A contribution agreement with Agence Française de Development (AFD) was established in 2021, for
EUR 12.48 million, for the implementation of the City Investment to Innovate, Integrate and Sustain
2.0 (CITIIS 2.0) programme. CITIIS 2.0 is the second phase of an ongoing initiative in support of India’s
Smart Cities programme under the leadership of the Ministry of Housing and Urban Affair and will
contribute to SDGs 13, 11, 5, and 9, and leverage investments of up to EUR 800 million.
Team Europe
Team Europe initiatives (TEIs) adopted for
South Asia
responded to the EU, Member States and the
partner countries’ interests. Two of them are under the Green Deal pillar:
Bangladesh
for EU support
to the transition towards renewable energy; and
Nepal
with proposed support to green recovery
that includes elements of human capital development and good governance for a strong
transformational impact. Two further TEIs were proposed under Growth and Jobs: support to the
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decent work agenda in Bangladesh, particularly relevant in the context of the country’s textile
industry; and private sector development, income generation and job creation in
Pakistan.
Engagement continues for the implementation of these and for the adoption of a new TEI in Sri
Lanka, focusing on green recovery.
Team Europe initiative in Bangladesh – Green Energy Transition
Energy is a key factor in boosting economic growth and reducing socio-economic inequalities. At the
same time, energy production and utilisation contributes to global warming. To reach the objectives
of the Paris Agreement on Climate Change, the Agenda 2030 for Sustainable Development and the
EU Green Deal ambitions, a global effort is needed to decarbonise the energy sector and prioritise
renewable energy production and energy efficiency, to which the Government of Bangladesh is
strongly committed. The TEI green energy transition (GET) aims to support Bangladesh to build a
power system that leads to maximum coverage of the country’s energy demand through renewable
energy by promoting public and private investments in renewable energy and energy efficiency
measures, hence reducing environmental degradation and ultimately contributing to the global
response to climate change.
Team Europe initiative in Philippines – Circular Economy and Plastic Waste Management
The proposed TEI foresees the implementation of an integrated approach to improve plastic waste
management. Improving plastic waste management and reduction of plastic waste and marine litter
is an initiative of strategic and transformative value for the Philippines. Widespread marine litter is a
recognised national crisis that needs a national concerted effort. This will build on the annual action
plan (AAP) 2022 on the Circular Economy programme. EU Member States are expected to contribute
beyond co-funding, focusing as well on providing their expertise and EU knowledge on circular
economy. Further involvement by European Development Finance Institutions (EDFIs) remains to be
determined.
Green Team Europe initiative for the Lao PDR
Given the convergence between the objectives of the European Green Deal and the Lao PDR’s Green
Growth Agenda 2030, European partners have agreed on a TEI on green actions. The Green TEI for
the Lao PDR will seek to foster sustainable investments by focusing on sustainable agriculture and
forest partnership.
Green Team Europe initiative in Partnership with ASEAN/South-East Asia
This regional TEI was launched on 18 November 2021 at the EU-ASEAN Sustainable Development
Dialogue, hosted online by the Kingdom of Thailand (see below). Austria, Germany, Denmark, France,
Romania and the EIB are partners in the TEI with a range of contributions in the form of grants and
loans, including for green infrastructure. In December 2021, the EU approved a EUR 30 million Green
Initiative programme. This will support cooperation with ASEAN on climate action and environmental
protection and make a key contribution to the Green TEI.
The TEI will address the transition towards circular, climate-neutral and environmentally sustainable
economies and resilient ecosystems, implementing the external dimension of the European Green
Deal covering the areas of clean energy, circular economy, sustainable food systems, biodiversity and
sustainable landscape and sustainable urban development and planning for green, socially inclusive
and smart/ digitally connected cities.
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ASEAN
In December 2020, the EU and ASEAN elevated their relationship to a Strategic Partnership, building
on decades of dynamic and broad-based cooperation. In 2021, the EU approved the overall Regional
MIP for ASIA-Pacific, including priorities areas for ASEAN/South-East Asia covering Implementing the
ASEAN-EU Strategic Partnership, Green and inclusive sustainable development, and Sustainable
connectivity.
The EU-ASEAN- Dialogue on Sustainable Development provided a platform for the EU and ASEAN to
discuss and take stock of joint priority areas, notably on climate change and environmental
degradation; gender equality and women’s empowerment; and sustainable growth, innovation and
digitalisation.
Migration
Throughout 2021, the Commission has been working on implementation of the proposed New Pact
on Migration and Asylum with a proposal for migration partnerships with a range of priority
countries. Within Asia, Afghanistan, Bangladesh, Iraq and Pakistan are considered as priority
countries for migration partnerships. EU development cooperation in these countries has included a
strategic focus on sectors that provide a balanced approach, targeting poverty and inclusive growth,
thereby addressing root causes of fragility and migration. Examples are job creation through private
sector development, income generation, community development projects and technical and
vocational educational training (TVET). In Afghanistan, the Commission is addressing the root causes
of migration through its support to basic needs and its response to the effects of internal and
regional forced displacement, without recognising or legitimising the de facto authorities.
The EU has provided a comprehensive response to the challenges of migration and forced
displacement in Asia and the Middle East with a focus on Afghanistan, Bangladesh, Iran, Iraq and
Pakistan through activities still ongoing from the previous MFF.
Highlights in 2021 were the approval of the Regional MIP for Asia-Pacific, where Migration features
as a priority area with an allocation of EUR 422 million. This will support actions approved at country
level and contribute to the indicative migration spending target of 10 % under the NDICI-Global
Europe. A package of special measures for the Afghan regional displacement situation (EUR 79
million) was fast-tracked for adoption at the end of 2021. In addition, programmes in Myanmar and
Thailand were adapted and approved to take account of the evolving situation in Myanmar in 2021.
In
China,
the Migration and Mobility Dialogues Support Project continued to be instrumental in
supporting the EU-China Migration and Mobility Dialogue (MMD) tackling issues on visa processes,
talent mobility and irregular migration.
The EU-India Cooperation and Dialogue on Migration and Mobility Project has directly supported the
EU-India migration dialogue and cooperation in such fields as irregular migration, tackling through
increased awareness on student mobility, remittances and development of an online course on EU
and Member State competences on migration.
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4.2.1.4. Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters
South Asia
Following the takeover of
Afghanistan
by the Taliban in August 2021, the political and institutional
context in the country has completely changed, along with the challenges and objectives for the
years to come. Afghanistan is facing a humanitarian crisis that affects the human right to life, as basic
needs are no longer met.
After a dramatic 35 % increase on the year before, Afghanistan had the
highest number of people in emergency food insecurity in the world by the end of 2021. More than
one in two children under the age of five faced acute malnutrition, with one million children at risk
of death.
The situation of women and girls has become particularly dire as their rights and
opportunities were increasingly restricted by the interim Taliban leadership. Continuous and
systematic efforts from the de facto authorities to regulate women’s behaviour paired with family
and community pressure and fear of punishment contributed to significantly increase the large-scale
institutionalisation of gender-based discrimination and to further exclude women from the social,
economic and political spheres. The lack of access to basic services exacerbated by COVID-19 posed
significant challenges for the Afghan population. Households had increasingly exhausted their means
for survival and had resorted to taking on unmanageable debt and relying on negative coping
mechanisms such as selling their children for food.
The EU’s priorities from the Taliban takeover have been established under the guidance of the five
benchmarks for EU engagement with the de facto authorities established by the Council and focus on
alleviating the impact of the grave humanitarian crisis through our basic needs aid package and to
engage 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 2021, the EU provided EUR 222 million for humanitarian assistance programmes covering the
needs of displaced populations, in particular on food security, nutrition, health, WASH, demining to
protect humanitarian workers, protection and education with a specific focus on the needs of
women and girls. Of the total funding, 26 % is allocated to health and nutrition, 23 % to food security
and livelihoods, 14 % to education, 12 % mine action and logistics and 11 % to winterisation and
multi-sector support. A minimum of five million beneficiaries in extreme need are planned to be
reached in the immediate term. As of 12 December 2021, around 280 tons of life-saving medication,
COVID-19 and nutritional items have been delivered to Kabul through the EU Humanitarian Air
Bridge, in close co-operation with humanitarian partners.
Southeast Asia
In 2021, the
Rohingya crisis
entered its fifth year with over 900 000 refugees in
Bangladesh
and no
prospect for a rapid end to the crisis. To alleviate the suffering of Rohingya refugees from Myanmar,
and their host communities in Bangladesh in 2021 the EU contributed EUR 35 million to the
humanitarian response. The EU assistance reached approximately 900 000 Rohingya refugees in the
sprawling and overcrowded refugee camps of Cox’s Bazar in Bangladesh, as well as hundreds of
thousands of Bangladeshi people in vulnerable situations covered by the Joint Humanitarian Plan.
The key needs addressed included food assistance, health, nutrition, water and sanitation,
protection, shelter and education. The EU also responded to additional challenges created by the
COVID-19 pandemic, reinforcing the health response, and funding isolation and treatment centres as
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well as the establishment of crucial surveillance and testing capacity in the affected district of
Bangladesh.
The coup d’état in
Myanmar
on 1 February 2021 saw a severe deterioration of the humanitarian
situation with 406 000 people across the country becoming displaced due to conflict and food
insecurity growing to unprecedented levels. To respond to the country-wide humanitarian needs, in
2021 the EU contributed EUR 23 million to the humanitarian response. The EU assistance reached
approximately one million people throughout the country including in new conflict areas and as well
responding to the needs of refugees in Thailand and India. The key needs addressed included multi-
sectoral emergency response, protection, food assistance, health, nutrition, water and sanitation,
shelter and education. The EU also responded to additional challenges created by the COVID-19
pandemic funding the importation and distribution of lifesaving oxygen equipment.
In 2021 the EU provided EUR 4.8 million in humanitarian assistance to the
Philippines
to address the
needs arising from the Mindanao conflict and natural disasters, mainly typhoons. Main sectors of
intervention were food security, WASH, shelter, education in emergencies, health, protection,
disaster risk reduction and disaster preparedness. With its support the EU contributed to alleviate
the needs of approximately 115 000 internally displaced persons due to conflict and several hundred
thousand of people affected by natural catastrophes. In addition, the EU supported national
authorities to be better prepared in case of disasters.
4.2.1.5. Crisis response and preparedness
EU crisis response actions were mobilised to respond to the dramatic events in
Myanmar
and
Afghanistan.
In
Myanmar,
a number of actions were adopted in support of the protection and
resilience of the civilian population as well as to enhance international efforts for accountability and
the fight against impunity.
In
Afghanistan,
efforts to support the peace process continued until the Taliban takeover of the
country. The first Capacity-Building in Support of Development action for
Afghanistan
for the
management of ammunition stockpiles, in collaboration with the Ministry of Defence of Afghanistan,
had to be suspended due to the Taliban take-over. Efforts to enhance human security, the protection
of civilians and the promotion of international humanitarian law continue.
Crisis response support to Rohingya refugees in
Bangladesh
continued, as did the regional initiative
on the prevention of violent extremism in
Southeast Asia
and support to increased security in the
Maldives.
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.
4.2.2. Central Asia
4.2.2.1. Introduction (policy developments)
The COVID-19 pandemic continued to have a serious impact in all Central Asia countries. Recovery
efforts were high on all political agendas as was the regime change in Afghanistan.
In 2021, Kazakhstan celebrated its 30th anniversary of independence. The country’s agenda was
dominated by post COVID-19 recovery, climate change (COP26), challenges to reforms in the area of
human rights and the situation in Afghanistan. In November, President Tokayev visited Brussels.
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Although Kazakhstan, like its neighbours, was hit hard by COVID-19, GDP grew by 3.4 %. Kazakhstan
expressed interest in closer economic cooperation with the EU. It announced the intention to reduce
greenhouse gas emissions by 15 % by 2030, and to achieve carbon neutrality by 2060. Despite
President Tokayev’s firm commitment to human rights, civil society remained critical about the lack
of effective implementation. Kazakhstan endorsed the UN Security Council’s call for an inclusive and
representative government in Afghanistan and cautiously began restoring economic ties with the
Taliban while refraining from official recognition.
In Kyrgyzstan, the parliamentary elections of 28 November 2021 completed the transition process,
which had started with the cancellation of the 4 October 2020 vote, followed by early presidential
elections in January 2021 and adoption of a new Constitution in April. Pro-government parties won
the elections amid a low voter turnout (around 34 %). In many areas, government policy was moving
away from democratic standards and principles. The new Constitution that entered into force in May
was widely criticised for strengthening the President’s authoritarian rule. The new President Japarov
and the political elite made a huge effort to consolidate their power through significant reforms in
legislation including adopting the new, more centralised ‘Presidential’ constitution and a legal
inventory encompassing 359 laws.
In 2021, Tajikistan’s domestic politics registered no dramatic change. The country remains an
authoritarian state with no real political opposition and elements of a personality cult. President
Rahmon, who turned 69 in October, has been in office since 1992. Of particular concern was the
situation in the Gorno Badakhshan Autonomous Region, following the wave of protests that erupted
in November after the killing of a local resident by law enforcement authorities. Serious human rights
concerns derived also from the clashes at the border with Kyrgyzstan in April, which led to the death
of 55 people and the displacement of more than 40 000 civilians. Regional security and stability are a
key concern for Tajikistan, especially since the regime change in Afghanistan in August 2021. The two
countries share a border of more than 1 350 km. Contrary to its neighbours, Tajikistan has adopted a
strong and vocal position against the Taliban and has called for an inclusive Afghan Government with
a fair representation of national minorities, including ethnic Tajiks, the second largest ethnic group in
Afghanistan.
In Turkmenistan, the authoritarian regime of President Berdymuhamedov continued to exercise tight
control of the population leaving no room for political opposition. In July, the President’s son Serdar
was appointed Deputy Prime Minister, which was considered as another step to prepare him to
succeed his father. The Government continued to deny the existence of any COVID-19 cases in the
country but kept up tough restrictions throughout the year. The pandemic had a negative impact on
all areas of the economy. The country experienced shortages of subsidised food. In its foreign policy,
Turkmenistan continued to pursue a policy of neutrality. Having a strong interest in cross-border
infrastructure projects with Afghanistan, it had established contacts with the Taliban already before
their takeover in August and started cooperation with the new regime in Kabul before the end of the
year.
In Uzbekistan, President Mirziyoyev (in office since 2016) was re-elected on 24 October 2021 with a
large majority. International observers reported significant procedural shortcomings on election day
and the absence of a meaningful competitive electoral environment. In the field of human rights
there is steady progress despite ongoing challenges, notably to the freedom of expression, with
question marks about the rule of law. Negotiations to conclude a new Enhanced Partnership and
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Cooperation Agreement (EPCA) have neared completion. Uzbekistan also won GSP+ status in April
2021. Since the Taliban take-over in August, Uzbekistan has showed a pragmatic approach towards
the new regime in Kabul, prioritising stability, trade and connectivity.
4.2.2.2. Working together towards the SDGs
EU funded actions across the region continued to address a wide range of SDGs in line with the
multiannual indicative programmes (MIPs) at country and regional level and the new EU strategy on
Central Asia, which sets out the focus of EU support in terms of three interlinked objectives: support
for resilience, support for prosperity and support for intra-regional cooperation.
Concerning cooperation with
Kyrgyzstan,
the EU adopted a new MIP for the period 2021-2027, with
three priority areas: governance and digital transformation, human development, and green and
climate resilient economy. This will enable the EU to continue the work done under the previous MFF
in the country. A first annual action plan (AAP) under this MIP was also adopted, constituting an
Education Sector Reform programme that will support mostly SDG 4 (Inclusive and equitable quality
education), but also SDG 5 (Gender equality).
In
Tajikistan,
the MIP for 2021-2027 will focus on inclusive green and digital economy, human
development, and natural resources management, efficiency and resilience. The three new priority
areas build on the previous MFF work in areas such as education and health and will expand the EU’s
actions within the water-energy nexus field. The first AAP adopted under this MIP will support the
country’s energy sector reform towards the deployment of renewable energy sources.
The new 2021-2027 programme for
Uzbekistan
will focus on effective governance and digital
transformation, inclusive, digital and green growth, and development of a smart eco-friendly agri-
food sector. A feature of the new programme is the Team Europe initiative (TEI) ‘Support to a
modern and sustainable agri-food sector and resilient livelihoods’, which aims at facilitating inclusive,
green, sustainable, gender responsive and climate-smart development of the agri-food sector. Five
annual action plans (AAPs), which are planned for adoption in the first half of 2022, will strengthen
the national anticorruption system and the capacities of the Ministry of Justice and, through a green
economy technical assistance programme, the implementation of environment-related conventions.
Complementing the current EU budget support programme, on-going since 2019, the development
of the agri-food sector and resilient rural livelihoods will also be supported through a new
programme, to be proposed for adoption in 2022.
In
Kazakhstan,
a Cooperation Facility will support, from 2021-2027, the implementation of the
Enhanced Partnership and Cooperation Agreement (EPCA). The Facility will focus on two priority
areas: Sustainable economic growth with an emphasis on micro-, small and medium-sized
enterprises (MSMEs), devastated by the COVID-19 crisis, and a focus on women and youth-led
MSMEs; and rule of law to strengthen the legal framework and institutions in place ensuring the
respect of human rights and justice for all.
In
Turkmenistan,
a Cooperation Facility will contribute, from 2021-2027, to continuing and
reinforcing EU-Turkmenistan relations and policy dialogue and will focus on two priority areas: Green
aspects of the economy; and Improving the business climate with a focus on agriculture/rural
development and supporting trade development. Emphasis will be put on micro-, small and medium-
sized enterprises (MSMEs) with women and youth led MSMEs benefiting from specific support.
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For both Kazakhstan and Turkmenistan, the multiannual action plans to implement the cooperation
facilities were adopted in December 2021.
With regard to SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in Central Asia. During the period 2014-2020 there
were 8 600 short-term mobilities in both ways, 418 Erasmus Mundus scholarships to Central Asian
students, and 114 capacity-building projects and 13 Jean Monnet projects with higher education
institutions in the region.
In 2021 there were exceptionally only 2 Erasmus+ calls opened for the region: 79 students received
Erasmus Mundus scholarships, while 1 Jean Monnet Module and 1 Jean Monnet Chair from
Uzbekistan, plus 1 Jean Monnet Center of Excellence from Kazakhstan were selected.
4.2.2.3. Implementation
A Strategic Evaluation of EU Blending and Budget Support in Kyrgyzstan was conducted including
discussions with colleagues from EU Headquarters and the Delegation, the partner government and
external stakeholders. This evaluation, the first of its kind in Asia-Pacific, is innovative in its approach
of assessing how different instruments available to the EU are compatible and mutually reinforcing
or overlapping. Delivery of the evaluation report is expected early in 2022.
In November 2021, the first in-person European Union – Central Asia Economic Forum took place in
Bishkek. The Forum was led on the EU side by the Executive Vice-President of the European
Commission Valdis Dombrovskis and gathered Prime Ministers and Deputy Prime Ministers of Central
Asian countries as well as Ministers and high-level officials from more than 15 EU Member States,
representatives of the EU and Central Asia private sector, international financial institutions and
international organisations, and civil society. In line with the EU strategy on Central Asia, the Forum
focused on green recovery, digitalisation and a better business environment. The participants
reaffirmed their commitment to strengthen EU-Central Asia cooperation to support the development
of diversified and competitive private-sector driven economies that can create jobs, integrate in
regional and global value chains, and provide opportunities for all economic actors, as well as help
Central Asian states build back better.
The Commission participated in the International Conference on Connectivity in Central and South
Asia, which took place on 16 July 2021 in Tashkent, Uzbekistan. Commissioner Urpilainen
participated in the 17th EU-Central Asia Ministerial Meeting on 22 November 2021 in Dushanbe,
Tajikistan, chaired by High Representative Vice-President Borrell.
Human Development
In Kyrgyzstan, the final disbursement under the ongoing Education Budget Support programme,
worth EUR 7.4 million, was delivered in December 2021. A successor programme was adopted in the
same month.
In Tajikistan, the three contribution agreements planned under the previous MFF Health
Development programme were successfully signed. Working with the Ministry of Health and Social
Protection (MOHSP), GIZ, WHO and United Nations Children's Fund (UNICEF) for its implementation,
the EU is aiming, through this programme, to support Tajikistan's progress towards universal health
coverage.
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Green Deal
In Kyrgyzstan, the EU contracted in March 2021 the Nookat Water Project, a Blending operation with
the European Bank for Reconstruction and Development (EBRD) worth EUR 2.17 million.
2021 saw the successful completion of the tendering phase for the first EU regional programme in
years to tackle regional energy integration: the EU Sustainable Energy Connectivity in Central Asia
programme. This project will support regional governments’ regulatory reforms and investments in
sustainable energy for greater integration of the regional energy market. The project will be part of
the Team Europe initiative for water, energy and climate change in Central Asia.
Sustainable growth and jobs
A flagship project of Tajikistan’s Rural Development programme II under the previous MIP, the
Integrated Rural Development Project started implementation in early 2021. It aims to boost added
value of agricultural production, thus increasing the income of value chain actors through a market-
oriented value chain approach.
In Turkmenistan, the EBRD continued implementing a bilateral support scheme for small and
medium enterprises (SMEs): the Enterprise Growth programme.
Digitalisation, science, technology and innovation
The disbursement of the first two tranches under a Digitalisation Sector Reform Performance
Contract in Kyrgyzstan took place in December 2021, totalling EUR 12 million. This is the first ever
disbursement under a digitalisation Budget Support programme in Asia-Pacific, supporting the
capacities of the Kyrgyz Government to deliver on its Digital Concept and the related Kyrgyz Digital
Transformation Roadmap 2019-2023. Under the same programme, a Twinning project was launched
in November 2021 with the participation of Commission Executive Vice-President Dombrovskis. This
operation implemented by a consortium of three EU Member States (Estonia, Finland and Italy) aims
to build the capacity of national authorities to manage and participate in e-governance as well as
promote transparency and accountability.
Migration
At the end of 2021, the EU put in place a comprehensive package to support existing and newly
displaced Afghans and their host communities in Afghanistan and neighbouring countries, with a
focus on protection, access to basic services, livelihoods and skills development. This includes
support to Tajik communities in hosting Afghan arrivals implemented by IOM and UNHCR.
Governance, peace and security
The EU launched the new phases of two regional programmes in the broad field of security in 2021:
the 7th phase of the Central Asia Drug Action programme (CADAP 7) in February, and the 10th phase
of the Border Management programme in Central Asia (BOMCA 10) in April. Both programmes are
implemented by EU Member State agencies and represent a holistic approach to security issues in
Central Asia, respectively drug demand reduction and integrated border management.
Following the Afghanistan crisis which began in August 2021, BOMCA 10 was immediately redirected
to face the needs of Central Asian countries deriving from the changed security situation. Training
and equipment were delivered to Border Guards in Tajikistan, the country most confronted by
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negative fallout from the new circumstances, and discussions took place with all Central Asian
countries to determine how to best support them to avoid regional destabilisation.
In Kyrgyzstan, the EU contracted and launched the programme ‘Justice4All: Mainstreaming People-
Centred Reform in the Justice Sector’ with the United Nations Office on Drugs and Crime (UNODC).
The main focus of the new programme is on supporting the establishment and functioning of
probation, crucial to carry forward the implementation of the judicial reform and advancing further
digitalisation in the justice sector.
Team Europe initiatives
Initial discussions took place for the preparation of a regional Team Europe initiative (TEI) on digital
connectivity in Central Asia, including exchanges with EU Member States and financing institutions to
gauge their level of interest. Sufficient interest was expressed to justify the continued preparation of
this initiative in 2022.
The Regional TEI on water, energy and climate change in Central Asia was also discussed with EU
Member States and financing institutions, and a working group was set up with a kick-off meeting in
December 2021. In Uzbekistan, the TEI ‘Support to a modern and sustainable agri-food sector and
resilient livelihoods’ will aim at facilitating inclusive, green, sustainable, gender responsive and
climate-smart development of agri-food sector supported through blending operations, technical
assistance, budget support and policy dialogue. Through this TEI, the EU, France, Germany, the
European Investment Bank (EIB) and the EBRD will work with the Government and non-state actors
to address the risk of exclusion in the transition, and to promote the competitiveness and market
inclusion of the most disadvantaged producers in low-carbon and climate-resilient value-chains.
C
ASE STUDY
The
Quality Education Support programme in Tajikistan
successfully achieved its objectives at the
end of 2021. With an allocation of EUR 15 million it has been the EU’s first large-scale programme in
support of the education sector in the country.
The main achievements in general secondary education include the reform of Teachers’ Continuous
Professional Development, the piloting of the first ever National Learning Assessment in 5th and 11th
grades and the finalisation of the reform for transition to a competence-based approach. More than
63 000 teachers were trained and 72 school laboratories were supplied.
The main achievements in the vocational education and training area include the development of the
Continuous Professional Development, Teachers’ Competency Framework and the Staff Appraisal
System for TVET teaching and management staff. 2 500 teachers received training through 30
programmes and eight Teacher Re-training centres were established.
This programme has paved the way for future cooperation on education, which is a crucial sector
under the Human Development Priority Area in the Tajikistan MIP 2021-2027, in support of the
country’s growing young population.
Under the regional programme, a new programme, DARYA, which will start this year implemented by
the European Training Foundation, will take forward support for TVET and youth employment
throughout Central Asia.
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4.2.2.4. Crisis response and preparedness
Actions carried out under the NDICI-Global Europe supported work with
Central Asian partners
on
stability, social cohesion and cross-border dialogue, directly implementing the priorities set in the
new EU strategy on Central Asia.
Following the increase in tensions after the October 2020 elections in
Kyrgyzstan,
and to reduce the
risk of conflict in relation to the November 2021 elections, the EU prepared a crisis response action
to support a participative and pluralistic political dialogue as well as efforts to avoid violence in
connection with the 2021 elections and referenda.
In response to the Taliban takeover of
Afghanistan,
support for border management in
Tajikistan
was mobilised. This includes the first capacity building of military actors in support of development
and security for development (CBSD) actions.
Through the Instrument contributing to Stability and Peace (IcSP), 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) programme. Work in this area focused
on putting in place legislation in line with international law and standards and work with prison staff
in
Kazakhstan
to prevent the radicalisation of inmates.
Funding provided under the IcSP enabled the UNDP to work with stakeholders in the
Ferghana Valley
trans-border area to enhance preparedness and resilience to climate change, focusing on water
resource management. A scoping study on environmental crime was also launched to explore
linkages between criminal activity, environmental degradation and biodiversity loss.
The mandate of the EU Special Representative (EUSR) Central Asia, extended until February 2023,
promotes good and close relations between the EU and the countries of Central Asia on the basis of
common values and interests as set out in relevant agreements. The role contributes to
strengthening the stability and cooperation between the countries in Central Asia as well as
democracy, the rule of law, good governance and respect for human rights and fundamental
freedoms.
4.2.3. Middle East/Gulf region
4.2.3.1. Introduction (policy developments)
The Gulf Cooperation Council (GCC): the Al-Ula Agreement in January 2021 represented a major
breakthrough that led the Gulf countries to resolve their ‘internal rift’. The EU-GCC partnership
benefitted from the renewed GCC unity and solidarity, and institutional engagement has been fully
resumed.
In 2021 for the first time in five years, the 23rd EU-GCC Regional Directors Meeting, convened in a
virtual format and offered the opportunity to discuss regional crises of mutual interest and lay the
ground for a more strategic and broaden partnership encompassing regional and global challenges
(green transition and climate, COVID-19 response, counterterrorism, coordination on humanitarian
action and development assistance). The 26th EU-GCC Joint Council and Ministerial meeting was held
for the first time since 2016 in Brussels in the margins of the EU FAC of February 2022; it was
prepared by the Joint Cooperation Committee held in Riyadh the same month. It endorsed a joint
cooperation programme setting forth institutional events, sectoral working groups and joint activities
to be carried out over the next five years.
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To accompany the new momentum in the EU-GCC relations, the EU started preparation for the
adoption of an EU Joint Communication on partnership with the Gulf region due for adoption in early
2022.
Along with the region-to-region cooperation, the EU continued engaging bilaterally with GCC
countries through the non-binding cooperation arrangements. On 10 February, the High
Representative Vice-President (HRVP) and the
Bahraini
Foreign Minister signed a Cooperation
Arrangement in Brussels. The third Senior Officials Meeting (SOM) was held with the UAE (March). To
implement his mandate from January 2020 to contribute to Gulf security, the HRVP visited the Gulf
region in early October, notably the UAE (including Dubai EXPO 2020), Qatar and the Kingdom of
Saudi Arabia (KSA). The EU also continued engaging on human rights with the Gulf countries,
including by holding the fifth round of the informal Human Rights Dialogue with
Bahrain
(February),
the 2nd with
Kuwait
(March) and the 10th round with the UAE (June). During 2021, several EU high
level visits (at Commissioner level) to the UAE took place, mostly in the context of the (postponed)
Dubai EXPO 2020 where the EU participated with a series of high-level events.
EU-Qatar relations reached an unprecedented intensity in high-level contacts and in the breath of
our cooperation: from HRVP’s visit to Doha and the signing of the Aviation Agreement last October to
cooperating in the evacuation of EU nationals and Afghans at risk from Kabul. Cooperation on Human
Rights focused on labour reforms and the dismantling of the kafala system, with high level
engagement by several EU Commissioners (Reynders, Schmit) with the Qatari Minister for Labour as
well as expert-level discussions during the third EU-Qatar Human Rights Dialogue held on 3 June
2021.
Institutional engagement with
Saudi Arabia
underwent a significant boost with HRVPs’ first visit to
the Kingdom in October, which included the signature of the Cooperation Arrangement and the
organisation of the long-awaited first EU-KSA Human Rights Dialogue on 27 September 2021 co-
chaired by the EU Special Representative for Human Rights and with Member States present as
observers.
The EU and
Iraq
further strengthened bilateral relations through the implementation of the EU-Iraq
Partnership and Cooperation Agreement (PCA). The EU hosted the informal migration dialogue in
February, which sets out a comprehensive cooperation on migration and asylum. The EU also hosted
the PCA Subcommittee on energy (15 June 2021), as well as the Cooperation Committee (15
September 2021) which took stock of the three preceding Subcommittees and cleared the
institutional path for a Cooperation Council at Ministerial level. At political level, EU foreign Ministers
had a good exchange with the Iraqi Foreign Minister at the margins of the Foreign Affairs Council in
June, which was followed by visits of EU HRVP Borrell and VP Schinas to Iraq in September and
November respectively. In parallel, the EU continued to work on various areas such as supporting the
Iraqi October elections by deploying an Election Observation Mission, migration, human rights,
employment opportunities, socio-economic reforms, stabilisation, accountability for Da’esh crimes
(UNITAD) and civilian security sector reform through the ongoing EU Advisory Mission/EUAM. The EU
also continued co-chairing the Iraq Economic Contact Group (IECG) throughout the year to assist Iraq
with international expertise on its economic reform path.
Throughout 2021, the EU continued its active diplomatic outreach to relevant actors including the
Government of
Yemen,
Houthis, southern movements and regional actors in close coordination with
the UN. As part of its efforts to contribute to peace and stability, the EU has in 2021 also adopted an
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integrated approach to the peace process to promote coherence and effectiveness of the EU and
Member State actions. In addition to support the UN Special Envoy and his office, the EU has also
continued support to de-escalation and peace-making initiatives, stabilisation, development
assistance and humanitarian support.
4.2.3.2. Working together towards the SDGs
The Commission’s activities in
Iraq
comprise a series of multi-sector and multi-stakeholder measures
focusing on sustained improvements in governance, fair and sustainable employment opportunities
and building a solid human capital, thereby holistically addressing root causes of fragility and
displacement. Following the improving security conditions and the normalisation process ongoing
since the territorial defeat of Da’esh, the EU is changing approach from short-term post-crisis
recovery to long-term development cooperation, with a view to better address the SDGs. Hence, the
European Commission adopted a multiannual indicative programme (MIP) for Iraq for the period
2021-2027. The MIP has as overall objective of consolidating Iraq’s fragile political and economic
stability by addressing root causes of fragility and displacement. It is based around three priority
areas: green job creation and economic diversification; human development and social contract; and
digital participatory governance and democracy.
The persistent conflict in
Yemen
continues to feed one of the deep humanitarian crises in the World
and to undermine human development, reversing hard-won progress on the SDGs and setting back
development by more than 47 years
95
. The EU has mobilised its development assistance to preserve
the functioning of local institutions, basic services and economic activity in order to preserve the
social and economic fabric of Yemen. Through an integrated humanitarian-development nexus
approach, the EU supports actions towards the prevention of hunger, eradication of poverty and
provision of quality basic services, including healthcare, education, clean water and sanitation, as
well as affordable and clean energy. In addition, gender equality, climate adaptation and peace
objectives are mainstreamed across EU development actions.
Iran
does not participate in the Voluntary National Review process.
The Sustainable Development
Report 2021
96
is the only source indicating Iran’s progress towards SDGs. SDG 4 (Quality Education)
remains the only achieved SDG. A positive trend is noted only on SDG 9 (Industry, Innovation and
Infrastructure). Major challenges remain in achieving SDG 2 (Hunger), SDG 5 (Gender Equality), SDG 6
(Clean Water and Sanitation), SDG 8 (Decent Work and Economic Growth), SDG 10 (Reduced
Inequalities) and SDG 16 (Peace, Justice and Strong Institutions). The adoption of a first multiannual
indicative programme (MIP) for the period 2021-2027 will permit a more sustained approach
towards SDG attainment. This MIP has as three priority areas: sustainable jobs and growth; the
climate change-environment-green transition nexus; and cross-border challenges (migration, forced
displacement drugs).
In the
Gulf countries,
cooperation with the EU through the EU-GCC (Gulf Cooperation Council) Clean
Energy network and the EU-GCC Economic diversification dialogue has continued to address SDG 7
(Affordable and clean energy), SDG 8 (Decent work and economic growth), SDG 9 (Industry,
95
United Nations Development Programme,
Assessing the Impact of War in Yemen on Achieving the
Sustainable Development Goals,
2019, https://www.ye.undp.org/content/yemen/en/home/library/assesing-
the-impact-of--war-on-development-in-yemen-SDGs.html
96
United Nations,
The Sustainable Development Goals Report 2021,
https://unstats.un.org/sdgs/report/2021/
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innovation and infrastructure), and SDG 13 (Climate action). There are intense cooperation activities
and dialogues at technical and political levels under these two projects towards achievement of SDGs
7, 8, 9 and 13. Some key events on hydrogen, research and innovation, and trade and investment
have been organised in the region, including at the Expo2020 in Dubai with the participation of EU
Commissioners to promote EU policy exchanges and outreach. These projects have also produced
targeted analysis in these areas as the basis for discussion and exchanges with Gulf countries and
with the view to work jointly with them towards the achievements of these SDGs.
The most recent project for the region, the enhanced EU-GCC political dialogue, cooperation and
outreach was launched at the end of 2020 and started deploying a number of activities in the region
in direct relation with SDG 4 (Quality education), SDG 5 (Gender equality), SDG 10 (Reduced
inequality), and SDG 16 (Peace, justice and strong institutions). The project helps operationalising EU
GCC cooperation in the field of gender equality with several high level bilateral and regional events
organised in the region on gender equality. A conference on judicial cooperation and presentation of
a web portal on mutual legal assistance was held with Public Prosecution offices, Ministries of Justice
of the region and Eurojust giving shape to this long-awaited enhanced cooperation. The project is
working with several universities in the region to promote an inclusive and qualitative higher
education system.
In terms of SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in the Middle East. During the period 2014-2020
there were 2 800 short-term mobilities in both ways, 335 Erasmus Mundus scholarships to students
from the Middle East and 5 Jean Monnet projects with higher education institutions in the region.
In 2021 though there were exceptionally only 2 Erasmus+ calls opened for the region: 44 students
received Erasmus Mundus scholarships, while a university from Iran was awarded with a Jean
Monnet Module.
4.2.3.3. Implementation
Within the newly adopted multiannual indicative programme for
Iraq,
the European Commission,
adopted a first annual action plan 2021, which will provide support to durable solutions to
displacement and other migration challenges as these continue to threaten Iraq’s stability and
security. This support will target the reform of national systems, especially those relevant to basic
service delivery, job creation and governance since these are the most crucial in addressing the
needs of returnees and displaced persons. 2021 saw the continuation of the process towards Joint
Programming through the adoption of a Team Europe initiative for Iraq on ‘Sustainable and inclusive
socio-economic perspectives’, with the participation of five EU Member States (Germany, France,
Italy, The Netherlands and Sweden).
The EU is among the leading development contributors in
Yemen.
Development actions are based on
a shared context analysis with humanitarian crisis response and political services to ensure a
coherent EU integrated approach to the conflict. The situation in Yemen continues to be fluid. On the
political front in 2021, new waves of violence have flared up across the country, plunging the country
into deeper economic crisis. In this context of fragility, EU development assistance continued to be
implemented through ad hoc special measures to meet evolving needs. So far, the Commission’s
sizeable development assistance has supported the resilience of the Yemeni population and helped
prevent state institutions from collapsing. This approach was reinforced in 2021 with the adoption a
special measure in support of basic service provision and early economic recovery. A new project
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began implementation in 2021, funded under the thematic line for food security (PROACT), which
bridges the divide between humanitarian and development action. This nexus project aims to create
graduation models for beneficiaries of humanitarian aid, allowing them to sustain an income and no
longer be aid dependent.
The Commission significantly increased its extensive engagement on supporting more than three
million Afghan nationals in
Iran
through both UN agencies and international NGOs. This had been
driven by a correct assessment in early 2021 that the Taliban would take over in Afghanistan.
Specifically, this work focused on health, education, creation of livelihood and it positively
contributed to achieving SDGs 2, 6, 8 and 16. Furthermore, in 2021 significant progress was made in
the context of EU Hamoun Wetlands project that aims to create livelihood opportunities in these
critical border areas where water scarcity and dust storms are systemic issues. This project
contributes to achieve environmental and climate change SDGs where serious challenges remain.
After supporting Iran’s Ministry of Industry, Mining and Trade in developing Iran’s National Export
strategy, 2021 again provided a fresh impetus to the ‘EU-Iran Trade Development’ project. First, in
March 2021, the Europe-Iran Business Forum was held completely virtually. It saw participation of
around 4 000 business participants. Secondly, the Commission adopted a EUR 7 million project to
prepare for the potential success in restoring the Joint Comprehensive Plan of Action (JCPoA – aka
the Iran nuclear deal).
EU projects in the region have supported the operationalisation of EU foreign policy priorities with
the
Gulf countries,
supporting country, regional or multi-country actions and dialogues, to deliver
tangible results on foreign policy commitments.
The EU GCC Clean Energy Network acts as a catalyst and facilitator for cooperation between EU and
GCC countries in the area of clean energy technologies and policies. The topics covered under this
project are renewable energy sources, energy efficiency and demand side management, clean
natural gas and related technologies, electricity interconnections and market integration, and carbon
capture, usage and storage. Climate change and research cooperation are a horizontal theme across
these areas.
The project on economic diversification dialogue supports the implementation of the economic
diversification strategies in the Gulf region in the context of sustainable development and the
commitments by the individual countries to reducing their greenhouse gas emissions. The project has
been delivering joint, bilateral or regional activities on a number of areas related to trade and
investment, circular economy, blue economy, digital economy and youth employment.
Specific initiatives are conducted to provide EU expertise, exchange of best practices and to create
opportunities for environmental, technology and business cooperation in areas of common interest.
The Enhanced EU-GCC political dialogue, cooperation and outreach, is a very agile and dynamic
instrument actively supporting EU priorities in the region on culture, education, youth and women’s’
empowerment, judiciary, good governance, counterterrorism and the development of people-to-
people activities.
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4.2.3.4. Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters
Iraq
Following the defeat of Da’esh in 2017, 4.9 million internally displaced people returned to their areas
of origin in Iraq. However, these returns stagnated over the past two years and 1.18 million Iraqis
remain in displacement, with 180 000 internally displaced people remaining in camps. In addition,
there are 250 000 Syrian refugees in Iraq. In 2021, 2.4 million people were in acute need.
In 2021, the Commission supported the humanitarian response in Iraq with EUR 28.5 million,
including EUR 3.5 million for COVID-19 vaccination campaigns run by the United Nations Population
Fund (UNFPA) and UNICEF in camps and informal settlements with the latter targeting over 532 000
vulnerable internally displaced people. In addition to supporting services for internally displaced
people and refugee camps, multi-sector assistance was provided to the most vulnerable displaced
households living in informal settlements and to education in emergency for displaced children.
Given the critical gap in essential documentation particularly for children born in former Da’esh
controlled areas, protection programming was prioritised, enabling 65 000 people to access civil
documentation to move freely and access basic social and legal services.
Yemen
After seven years of conflict, Yemen remains one of the largest humanitarian crises in the world.
Over 20 million people need humanitarian assistance, including protection, food and basic
healthcare. Four million people in need are internally displaced. In these conditions, COVID-19 has
spread across the country leaving an already highly vulnerable population at serious risk. The
operating environment remained challenging requiring constant negotiations on access by
organisations. Food, fuel and medicine imports remained restricted, largely insufficient and
increasingly costly.
In 2021, the Commission allocated EUR 134 million to provide assistance for the direct benefit of
approximately 4.3 million people. The COVID-19 response was mainstreamed in actions to mitigate
the spread and impact of the pandemic. Furthermore, a common database for emergency and
development actors was put in place to enhance interoperability, facilitating the transition from
short-term aid to longer-term assistance for beneficiaries. In addition, a new project was developed
jointly with UNICEF to provide education to 57 000 displaced children that are out of school. Jointly
with Sweden, the Commission has continued to organise donor coordination on Yemen, which has
contributed to a united voice among actors in negotiations on humanitarian access.
Syria
The Syria crisis, entering its eleventh year in 2021, left more than 13.4 million people in need of
humanitarian assistance inside the country. EUR 220 million of assistance was allocated to support
the most vulnerable impacted by this crisis, including Syrian refugees in Lebanon and Jordan. The
Commission continued to deliver life-saving assistance and support to millions of people throughout
Syria, including across conflict lines and international border crossings. This assistance contributed to
the vital delivery of food, medicine, water, and shelter. In neighbouring Lebanon, EU humanitarian
funding has contributed to cash assistance for the most vulnerable refugees, secondary healthcare
for life-saving cases, non-formal education and shelter including WASH. In Jordan, the Commission
supported the most vulnerable refugees in sectors such as health, protection and education.
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The Commission was also directly involved in international diplomatic initiatives related to the Syria
crisis, such as the fifth conference on ‘Supporting the Future of Syria and the Region’ held in Brussels
in March 2021, the Humanitarian Task Force of the International Syria Support Group in Geneva, and
other advocacy efforts to promote the respect of humanitarian principles and respect of
international humanitarian law.
Palestine
Regarding Palestine, the Commission responded to the humanitarian needs resulting from the
escalation of Israeli-Palestinian hostilities in May 2021 through the redirection of planned funding
and the mobilisation of additional resources. This latest escalation has further exacerbated
humanitarian needs in Gaza. It has also increased tensions in East Jerusalem and the West Bank, with
2021 seeing an increase in demolitions, confiscations and evictions, affecting Palestinians across the
West Bank and in East Jerusalem. A rise in settler violence, especially in the second half of the year,
has also been witnessed and is a cause for concern.
4.2.3.5. Crisis response and preparedness
In
Iraq,
the EU continued its support to local mediation efforts and to international efforts to ensure
accountability for crimes committed by Da’esh. The work to digitise evidence undertaken by the
United Nations Investigative Team to Promote Accountability for Crimes Committed by Da'esh/ISIL
(UNITAD) will facilitate access to evidentiary material for courts in
Iraq
and in other countries,
including EU Member States. Furthermore, a crisis response measure supported the electoral process
in
Iraq
with an emphasis on transparency and non-violence.
In
Yemen,
support continued to the United Nations-led peace process and to mediation and
stabilisation efforts through existing measures under the Instrument contributing to Stability and
Peace and the NDICI-Global Europe crisis response.
The EU Stabilisation Action under Article 28 in support of the United Nations Verification and
Inspection Mechanism (UNVIM) in
Yemen
aims at contributing to the efforts of UNVIM in the
restoration of the unimpeded free flow of commercial items to Yemen through the provision of a
transparent and effective clearance process for commercial shipments destined to Yemeni ports
which are not under the control of the Government of Yemen. The EU actions were launched in 2018
and are now extended to September 2022.
In
Israel and the Palestinian Territories,
the EU finances two civilian Common Security and Defence
Policy (CSDP) missions under the Common Foreign and Security Policy (CFSP) budget: 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.
In the
Middle East,
the EU Special Representative for the Middle East Peace Process (EUSR MEPP) is
also financed under the CFSP budget. The EUSR MEPP contributes to actions and initiatives leading to
a final settlement of the Israeli-Palestinian conflict based on the two-State solution.
4.2.4. The Pacific
4.2.4.1. Introduction (policy developments)
The EU has a long-standing engagement in the Pacific region as a major donor and a partner with a
shared vision on important global public goods, including environment, climate change, maritime
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security and cooperative regional order. The constructive EU engagement and cooperation continued
in 2021 with particular focus on how to engage at a more political level with the region under the
continued framework of the Cotonou Agreement that was extended until June 2023 pending the
signing of the new EU-ACP Partnership Agreement (‘post-Cotonou’).
The EU’s engagement gained a strategic momentum with the adoption of the EU strategy for
cooperation in the Indo-Pacific (September 2021), that aims to contribute to the region’s stability,
security, prosperity and sustainable development, and the Joint Communication on Global Gateway
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in December 2021, the EU’s strategy for sustainable and trusted connections that work for people
and the planet.
Throughout 2021, the EU held high-level political dialogues with Samoa and Timor-Leste focusing on
developing more political and strategic relationships. The EU also supported regional integration,
encouraging Pacific countries to speak and act as one and increasingly engage from region to region.
The EU underlined the importance of the strong and united Pacific Islands Forum as the premier
political regional body and advocated for a negotiated solution to avoid the withdrawal of
Micronesian states. 2021 saw the EU receiving Permanent Observer status to the Pacific Community
– one of our most important partners in implementing EU programmes in the region.
The impacts of the COVID-19 pandemic have seen a double shock to the Pacific countries: the health
impact that the pandemic has inflicted on the populations; and the economic impact of the
containment measures and the drop in tourism, one of the region’s main sources of income. The
‘Team Europe’ response to socio-economic recovery included reorienting funds from existing
programmes and frontloading budget support payments. The EU redirected EUR 24 million from
existing programmes and reserves for the health response and launched a new Pacific Health
Support programme in response to COVID-19 (EUR 22 million).
In 2021, the programming for the 2021-2027 multiannual financial framework (MFF) was finalised
and multiannual indicative programmes (MIPs) were adopted that will allow for substantial
engagement with the region on the key priorities: climate change, environment, oceans, good
governance, and security (Pacific multi-country MIP, EUR 117 million for 2021-2024; Papua New
Guinea MIP, EUR 115 million; and Timor-Leste MIP, EUR 55 million).
4.2.4.2. Working together towards the SDGs
Working better together is the European approach for development cooperation and international
partnerships to add value to the EU as a whole in terms of policy dialogue, technical and financial
support. Since the outbreak of the COVID-19 pandemic, the EU and its Member States, and the EDFIs,
have worked closer than ever, through a ‘Team Europe’ approach, to improve collective capacity to
react and to deliver with stronger impact, and visibility.
Beyond the immediate urgency, to respond to medium and longer-term development challenges, the
European actors joined forces to support a recovery that is sustainable, human rights based,
inclusive, green, digital, and which strengthens gender equality and boosts human development.
Emphasis is made in the Pacific region on green-related SDGs such as Clean water and sanitation
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(SDG 6), Affordable and clean energy (SDG 7), Climate action (SDG 13), Life below water (SDG 14),
and Life on land (SDG 15).
With regard to SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in the Pacific. During the period 2014-2020 there
were 2 700 short-term mobilities in both ways, 114 Erasmus Mundus scholarships to students from
the Pacific and Oceania and 71 Jean Monnet projects with higher education institutions in the region.
In 2021, there were exceptionally only 2 Erasmus+ calls opened for the region: EUR 340 000 have
been awarded to the 3 Jean Monnet Modules, 2 Chairs and 1 Center of Excellence selected (all
Australian, except one New Zealander Module). There were also 4 Australian associated partners to
Erasmus Mundus Joint Masters, while 1 only one student from Fiji, 2 from New Zealand and 6 from
Australia received an Erasmus Mundus scholarship.
4.2.4.3. Implementation
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ASE STUDIES
Kiwa Initiative in the Pacific region
The Kiwa Initiative is an international initiative bringing together France, the EU, Canada, Australia
and New Zealand in a joint programme for the Pacific region with a total budget of EUR 41 million.
The initiative aims at increasing the resilience of the Pacific Island Countries against the impacts of
climate change, and to protect, restore, and enhance biodiversity through nature-based solutions. In
2021, the first two projects proposed by Secretariat of the Pacific Community (SPC) and the
Secretariat of the Pacific Regional Environment programme (SPREP) and focussing on climate change
resilience in local communities with a total budget close to EUR 10 million started their activities.
Three other projects will start in 2022. A call for proposals launched by the International Union for
Conservation of Nature (IUCN) for small and medium scale projects triggered 49 proposals submitted
by eligible entities such as local authorities and small civil society organisations.
Support to Rural Entrepreneurship, Investment and Trade (STREIT) in Papua New Guinea
In Papua New Guinea, the EU’s Support to Rural Entrepreneurship, Investment and Trade (STREIT)
programme continued to make the local economy stronger and more climate-resilient by
empowering registered farmer groups and improving the overall investment environment. The
project organised the Geographical Indication Awareness Conference (GIAC); observed World Human
Rights Days; conducted tailored ‘Training-of-Trainers’ workshops for 32 government extension
service officers; trained 744 lead cocoa and vanilla farmers, including at least 335 young people,
established four cocoa budwood gardens, and distributed over 20 000 Cocoa Pod Borer-resistant
seedlings; opened saving accounts for engaged cocoa farmers and helped to established a banking
agent in the targeted locality. In the fisheries sector, the project identified ten women-led MSMEs for
FAO-Thiaroye fish processing techniques, six fish MSMEs for Solar Ice making manufacturing and 56
MSME's fishing groups and businesses for future support. As part of the programme an E-Agriculture
strategy was developed, aiming to increasing sustainable and inclusive economic development of
rural areas by using digital innovations, with a focus on strengthening effectiveness and efficiency of
cocoa, vanilla and fisheries value chains.
Team Europe initiatives
Team Europe initiative (TEI) - Green Blue Alliance for the Pacific and Timor Leste
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Officially launched at a side event in Glasgow at COP26 in November 2021, the key elements of this
TEI address climate action across policies with attention to promote equal societies, fundamental
values, human development and thus peace and security across 18 countries and OCTs. The EU
interest involved the preliminary commitment of several Member States, development agencies and
EDFIs to achieve a transformative impact.
This Team Europe initiative may also contribute to the EU’s action at international and multilateral
meetings, such as at the Indo-Pacific Conference.
Team Europe initiative - Forestry-Climate Change-Biodiversity (FCCB) nexus ‘Our Forest, Our
Future’ in Papua New Guinea
This comprehensive action will turn the EU into Papua New Guinea’s largest and most visible
development partner by far and the partner of reference in this area on top of the EU global agenda.
There will be a particular focus on environmental governance and sustainable jobs and growth.
Team Europe initiative – A new Green Deal for Timor-Leste
This action, aiming to bring green economic recovery, will deliver a sizeable impact and make the EU
and its Member States a reference partner in the green transformation of the economy in Timor
Leste. The action will support a sustainable and inclusive recovery from the devastating effects of
COVID-19. It will support the Timorese Government in the implementation of its own economic
recovery strategy to make it diversified, greener, inclusive and human centred, using the resources
that a digital transformation can bring.
Lessons Learned
2021 continued to be the year of digital meetings which allowed colleagues in Brussels and
Delegations to carry on working throughout the pandemic. However, this meant that no face-to-face
missions could take place in the Pacific region due to travel bans. Unfortunately, this severely
affected capacity building activities (for budget support programmes and indirectly managed
programmes) and the existing gap could therefore not be bridged. Only online virtual missions could
take place for colleagues in the EU Delegation in Fiji to successfully carry on the implementation of
programmes.
At regional level, cooperation continued mainly through projects implemented by regional or
international organisations. Relations were further enhanced when the EU became a permanent
observer of the Pacific Community (SPC) in August 2021, which is crucial for future relations between
the EU and Pacific actors. The announced withdrawal of the Micronesian states from the Pacific
Island Forum could impact our relations with this regional body in the future.
Despite serious delays, mainly due to political turmoil and the impact of the COVID-19 crisis, the six
preconditions and all four eligibility criteria for the first ever Budget Support programme in
Papua
New Guinea
were met during 2021. This resulted in a successful payment of the first tranche before
the end of the year.
In
Timor-Leste,
budget support disbursements took place for nutrition and public finance
management programmes.
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4.3.
Americas and the Caribbean
4.3.1. Americas
4.3.1.1. Introduction (policy developments)
The
new momentum created in the EU-LAC bi-regional relations
by the ministerial meetings in 2020
was used to intensify high-level political dialogue with the region in 2021. The President of the
European Council Charles Michel’s personal participation in the Community of Latin American and
Caribbean States (CELAC) Summit, the only leader of extra-regional partners, was very well received.
On 2 December 2021, an EU-LAC Leaders’ Meeting took place, with the participation on the EU’s side
of the leaders of the EU Institutions (President of the Council, of the Commission, and High
Representative) and on LAC side of the Heads of State/Government of the 2021 presidencies of the
main regional organisations in LAC. The discussion confirmed the relevance of a common agenda
focused on a sustainable, digital and inclusive recovery from the pandemic, as set out in the Berlin
Ministerial meeting of December 2020 and showed the EU commitment at the highest level to work
together with LAC. The LAC region is also a largely like-minded partner in multilateral fora and an
important partner at regional and global level.
The
COVID-19 pandemic continued to rage
throughout 2021, affecting the region more severely
than any other. With only 8 % of global population, LAC suffered more than 30 % of registered
COVID-19 related deaths. The EU exported 125 million COVID-19 vaccines to LAC, and the Team
Europe response to the pandemic committed to mobilise EUR 3 billion for emergency response to
humanitarian need (including medical equipment), strengthening health, water and sanitation and
addressing the social consequences of the crisis.
The
region-to-region dialogue with Central America
continued despite the change to video format.
The ratification of the Central American Association Agreement progressed with just one EU Member
State left to ratify. The EU renewed and reinforced its sanctions regime against
Nicaragua
as a
reaction to blanket repression and election fraud. The intense institutional dialogue agenda with
Cuba
continued. The EU also focused on the aftermath of the social protests of July 2021, which were
met with repressive action by the Government.
The double
pressure of COVID-19 and Brexit put the Caribbean region in dire straits.
On the plus
side, a political deal was reached on the ‘post-Cotonou’ Agreement, which will lay the foundation for
a renewed relationship with the region, capitalising on the results of current cooperation and
fulfilling EU geopolitical ambition. The Caribbean Protocol reflects the extent to which priorities are
aligned with common action focused on: fighting climate change and fostering green growth,
modernising economies, creating employment and advancing connectivity through digitalisation,
working together for peace and security, and the promotion of human rights.
Work continued towards the conclusion and signature of the EU Association Agreements with
Mercosur
(the Common Market of South America), and
Chile,
as well as with Mexico on the
modernisation of the Global Agreement. These agreements are crucial to revitalise our relationship,
promote common values and the economic recovery on both sides of the Atlantic.
In line with the EU efforts in support of a peaceful and democratic solution to the crisis in
Venezuela,
an EU electoral observation mission (EOM) was deployed to the regional and local elections of 21
November. The EU continued its diplomatic role in the crisis maintaining a diplomatic presence and
dialogue with all parties in Venezuela, supporting meaningful, pragmatic and inclusive negotiations in
the context of the Mexico talks with a view to a democratic transition. The EU reached out to the
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main international actors to promote a concerted international engagement. Several meetings of the
International Contact Group were organised. The EU has also sent an EU Election Expert Mission to
the parliamentary and presidential elections in
Peru.
In
Colombia,
political and financial support to
the implementation of the peace process that commemorated its 5th anniversary remained key in
the EU’s strengthened partnership. A new Memorandum of Understanding reinforcing and enlarging
the EU’s political and sectorial dialogue and cooperation with Columbia to new areas, notably
environment and sustainable development, was signed in September. For the first time since the
pandemic, the HRVP travelled to Latin America in November 2021 including a visit to
Brazil and Peru
in order to give a new impetus to the EU's engagement with the region. In Peru, which was most
affected by COVID-19 in terms of deaths (as a percentage of the population), the HRVP wanted to
show the EU’s full support to the country. In Brazil, the visit demonstrated the EU commitment to
this key strategic partner, including a critical engagement on environmental issues.
4.3.1.2. Working together towards the SDGs
Throughout 2021, the EU continued to assist countries and regional organisation to work towards the
SDGs. At the informal
EU-Latin America and the Caribbean ministerial meeting
of 14 December
2020, Ministers had agreed that the COVID-19 crisis is an opportunity to ‘build
back better’
in line
with the UN 2030 Agenda for Sustainable Development and to
join forces to develop green and
digital partnerships.
Programmes and projects continued addressing pressing challenges such as
climate change, security
and the
rule of law,
investments for
growth and jobs,
and
governance.
Team Europe
supported facilities such as COVAX (over EUR 3 billion) enabled the delivery of over 460
million doses of vaccines to 144 countries worldwide.
Country and regional
Team Europe initiatives
(TEIs) are well underway. TEIs cover issues of strategic
priority for the EU and its partners in relation to Global Gateway, the Green Deal, human
development, sustainable jobs, growth and regional economic integration, governance, peace and
security, and the digital agenda.
Through the
Erasmus+ programme,
the EU supports higher education cooperation and mobility
opportunities in the whole Americas region. During the period 2014-2020 there were 22 000 short-
term mobilities in both ways, 2 825 Erasmus Mundus scholarships to American students, and 92
capacity-building projects and 163 Jean Monnet projects with higher education institutions in the
three regions.
In 2021 though there were exceptionally only 2 Erasmus+ calls opened for the region: EUR 700 000
have been awarded to the 6 Jean Monnet Modules, 6 Chairs and 3 Centers of Excellence selected
(including the first Jean Monnet Chair ever for Ecuador). There were also 3 full partners and 40
associated partners in Erasmus Mundus Joint Masters from North America and Latin America, while
637 students received Erasmus Mundus scholarships (with Brazil, Mexico, Colombia and the USA in
the top-10 of global recipients).
4.3.1.3. Implementation
Countries in Latin America benefitted from programmes in key sectors such as water and climate
change; education; sustainable growth and jobs; food security; private sector and investment;
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economic development; security, rule of law, and governance. Regional programmes remained
crucial for strengthening the impact of the EU-LA partnership.
Programmes funded under the former Partnership Instrument (PI) continued to support the EU’s
political cooperation with the Americas at country, multi-country and regional levels. PI-funded
projects contributed to almost all priority areas identified in the EU-LAC Joint Communication
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, in
particular creating a level playing field for EU companies, promoting the uptake of European
technical standards, facilitating LAC countries’ commitment to the climate and environment agenda,
building partnerships between local authorities in the continent and in the EU, communicating the
EU’s policies and values, sharing Europe’s best practices, and strengthening people to people
contacts between both regions.
The region hosts over 50 % of the planet’s biodiversity, 57 % of primary tropical forest and some of
the world’s most important marine ecosystems. Climate change, environmental degradation and
biodiversity loss will have a huge impact on one of the most unequal regions in the world. The
COVID-19 pandemic has compounded further the deforestation and uncontrolled exploitation of
natural resources.
Post-COVID-19 recovery presents the EU with an unprecedented opportunity to engage with LAC
partners, many of whom are strong allies in multilateral fora on climate change and biodiversity, to
ensure a socially just and green recovery, in line with the EU Green Deal.
In 2021, the EU efforts to consolidate broader and deeper climate partnerships with the LAC region
met with success. EUROCLIMA+ made further progress in launching country dialogues and
implementing initiatives, adopting a ‘green recovery’ approach. The Team Europe initiative for the
Amazon Basin was launched. This aims to address forest fires and deforestation and provide support
to indigenous rights. The regional blending facilities and the new guarantees under the EFSD+ also
support the Green agenda.
The Regional Blending Facilities, the Latin America Investment Facility (LAIF) and the Caribbean
Investment Facility (CIF), mainly geared towards environmental sustainability, climate change, and
sustainable growth and jobs, tailored financing in the COVID-19 context. These were important
assets in responding to specific needs at country and regional level. Eleven blending projects were
signed in 2021 for EU contributions of, respectively, EUR 62.6 million under LAIF and EUR 20.8 million
under CIF.
The AL INVEST Verde programme started its operations at the end of 2021 to support the transition
towards a low-carbon, resource-efficient and a more circular economy in Latin America (EUR 33
million). Another EU flagship in the region, the Low Carbon and Circular Economy Business Action,
also continued to support the Green Transition, as well as enhancing access of EU SMEs to markets
across the Americas (Mexico, Brazil, Argentina, Colombia, Chile and Canada, EUR 20 million).
In the area of security and the fight against organised crime, the EL PAcCTO programme continued to
build momentum for a bi-regional partnership on security matters, progressively building bridges
between the justice, law enforcement and penitentiary institutions on both continents. The
programme positively contributed to position the EU as one of the main security partners in the
region, inspiring a regional Team Europe initiative on justice and security.
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and the ensuing
Council Conclusions 9241/19 of 13 May, 2019.
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The EU Trust Fund for Colombia continued to support the implementation of the peace agreement
between the Colombian Government and the FARC. It translated the EU’s political support to the
Peace Agreement. The Trust Fund supported 35 projects for a total amount of EUR 130 million. Main
results achieved are in the area of sustainable rural development and socio-economic reintegration
of former FARC-EP
99
combatants. Equally, specific initiatives focusing on the work of the Truth
Commission and the Special Jurisdiction for Peace, the Special Investigation Unit and the Search Unit
for Missing Persons accompanied the implementation of the peace agreement and reinforced the
transitional justice system.
In Central America and Mexico, 2021 was marked by a difficult socio-political context compounded
by the COVID-19 crisis. The EU is contributing to the Regional Contingency Plan against COVID-19 and
coordinates EUR 261 million of COVID-19 EU response funding for the region including actions for
health support and socio-economic recovery. The EU continued to strengthen its partnership with
Mexico through enhanced cooperation.
In terms of new initiatives, EUR 100 million is being invested into domestic revenue mobilisation for
inclusive growth, the promotion of decent employment, gender equality and women’s
empowerment, climate change, green recovery and sustainable forestry, and the Central America
Digital Trade Platform.
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Colombia Sustainable local development in support of the Peace Agreement and biodiversity
Legal and sustainable economic activities in rural areas of Colombia are key to guaranteeing viable
economic development in territories traditionally affected by violence and crops for illicit use, as well
as other activities such as illegal mining and deforestation. The majority of post-conflict areas have a
very high environmental relevance.
The programme has contributed to the rehabilitation and recovery of 27 801 hectares in and around
the National Natural Parks System. 1 390 land-use, occupation and/or property agreements/titles
were signed with local peasant and fishing communities. 305 local green businesses (handicrafts,
agri-ecology, non-timber forest products and eco-tourism) are supported to improve their
organisational structure and commercial viability in line with environmental criteria. Over 4 500
indigenous, peasant and vulnerable families have benefited from the programme.
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Fuerzas Armadas Revolucionarias de Colombia - Ejército del Pueblo
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©Efrain Molano/National Natural Parks. 2021
4.3.1.4. 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 (LAC) has been marked in 2021 by growing
humanitarian crises, critically impacted by COVID-19 and its collateral effects in terms of
vulnerability, violence as well as irregularity and exclusion of the more than 16 million migrants and
refugees in the region. Indigenous populations have been particularly affected by the pandemic. In
2021, for the very first time, the region reported six humanitarian response plans published together
with the regional response plan to the Venezuela migration crisis. In total, the EU allocated EUR 150
million in 2021 for this region, out of which EUR 16 million was used to respond to the
multidimensional impact of the COVID-19 pandemic with a focus on indigenous communities across
South America.
Venezuela
In 2021, Venezuela’s socio-economic and political crisis continued unabated, with severe
humanitarian consequences inside the country and spill-over effects regionally, with the COVID-19
pandemic exacerbating displacement, as well as humanitarian needs for basic services of health,
water, sanitation, hygiene, food, education and protection. Reports by local organisations showed a
dramatic deterioration in the overall living conditions with over 14 million people in need. Around six
million Venezuelans have left their country since the beginning of the crisis. This exodus is one of
Latin America’s largest mass population movements in history. In response to the growing needs
triggered by the Venezuela crisis, the EU allocated in 2021 a record amount of EUR 82 million,
supporting around two million people with multi-sector relief operations. The majority of the
humanitarian funds were deployed inside Venezuela, but aid was also provided to Venezuelan
migrants and refugees as well as to host communities in neighbouring countries. In 2021, the EU
remained the leading donor in the response to the humanitarian crisis inside Venezuela, not only in
terms of volume of funding, but also in terms of humanitarian diplomacy, including through the
Humanitarian Assistance working group of the International Contact Group (ICG) for Venezuela.
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Colombia
The humanitarian situation in Colombia deteriorated sharply in 2021 because of the escalating
internal conflict, compounded by the impact of the 1.8 million Venezuelan refugees in the country.
Border areas with Venezuela and the Pacific coast have been particularly affected by increasing levels
of violence. In Colombia, together with the emergency support provided in response to the
Venezuela migration and refugee crisis, the EU also provided emergency relief to those affected by
internal violence, displacement and restrictions of movement, particularly Afro-Colombian and
indigenous communities (with EUR 10 million allocated in 2021) as well as those affected by COVID-
19 and natural hazards. In 2021, the total number of beneficiaries reached by Commission-funded
partners amounted to 915 000 individuals.
Central America
In 2021, 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 2021, 8.3 million persons (25 % of the total population) in Guatemala, Honduras and El
Salvador needed humanitarian assistance, with main drivers being increased internal displacement
(1.7 million people affected), human rights violations and increasing transcontinental and extra-
continental population movements. For example, the number of people transiting through the
Darien Gap in Panama increasing dramatically during 2021 with more than 130 000 persons
reported.
In 2021, EU’s response of EUR 12.6 million targeted around 860 000 beneficiaries, focusing on
addressing the critical needs of the most vulnerable victims and survivors of organised violence,
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.
4.3.1.5. Crisis response and preparedness
As
Latin America
continued to face the COVID-19 pandemic and the ongoing crisis in
Venezuela,
the
EU continued its support to strengthen the resilience of vulnerable populations with an emphasis on
reducing the risk of tensions between migrants and host communities through crisis response
actions. Crisis response actions were also mobilised to support peaceful elections in
Honduras
as well
as to maintain EU support to the peace processes in
Colombia,
with a particular focus on the part of
the Peace Agreement that concerns the Victims of the Conflict. This includes support to the Special
Jurisdiction for Peace as well as the Colombian Truth Commission.
Through financing via the CFSP budget, the EU is supporting a project implemented by the
Organisation of American States (OAS) aimed at countering the illicit proliferation and trafficking of
small arms, light weapons and ammunition, and at mitigating their impact in LAC. This is done in the
framework of the EU strategy against illicit firearms, small arms and light weapons and their
ammunition: ‘Securing Arms, Protecting Citizens’.
The EU’s
Global Illicit Flows programme (GIFP)
flagship initiative continued to support partner
countries’ efforts to tackle international organised crime flows. A successful example of interdiction
is the Trigger VI action led by Interpol in cooperation with 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. The GIFP, as an EU external action
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mechanism, assists 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.
4.3.2. The Caribbean
4.3.2.1. Introduction (policy developments)
The negotiated text of the new EU-OCAPS Agreement (‘post-Cotonou’) was initialled on 15 April
2021, which opened the way for the formal approval process. It will succeed the Cotonou Agreement
once both sides complete their internal procedures for signature and conclusion. The new agreement
will contain a Caribbean Protocol, which builds upon the 2012 joint EU-Caribbean partnership
strategy and allows for an unprecedented regional focus with dedicated institutions. This is a real
opportunity to deepen the relations between the EU and the Caribbean, allowing the partnership to
become more political, on the basis of key common interests such as economic resilience, climate,
human rights, peace and security, and defending multilateralism. The protocol is a tool to help the
region address its key vulnerabilities: environmental (exposure to natural disasters and climate
change), economic (small, non-diversified economies with limited access to resources), and social
(inequalities, crime and security challenges due to being located on major drug trafficking routes). It
may also facilitate forging a strong relationship with the region post Brexit, seizing the opportunity to
create new linkages between the EU27 and the Caribbean countries in commercial, cultural and
political areas.
4.3.2.2. Working together towards the SDGs
The EU continued to support the Caribbean in working towards the SDGs using a variety of
instruments. An important focus of that support in 2021 has been the region’s post-pandemic
economic recovery. In 2021, the vulnerability of the Caribbean region to external shocks has
remained high. The governments’ fiscal position has deteriorated and the debt-to-GDP ratio
increased. This had an adverse effect on the capacity of the countries to invest and recover from the
COVID-19 pandemic crisis.
Six EU budget support operations in the region provided EUR 22 million. Examples of operations are
creating decent employment in Saint Lucia (SDG 8), enhancing social protection for the most
vulnerable in Barbados (SDG 1), tackling climate change challenges in Guyana and Jamaica (SDG 7
and 15), and enhancing governance efficiency in the Dominican Republic (SDG 1 and 16). A new
blending operation will provide affordable financing to public sector counterparts for investment in
water supply and waste management, both essential for improving the region’s climate resilience
and public health.
Addressing health coverage and limiting COVID-19 related mortality has been an important challenge
in the region. EU support to the Caribbean Public Health Agency has enabled access to protection
material, medical and laboratory equipment, and COVID-19 tests and treatments. Via the COVAX
Facility, EUR 2.2 million was transferred to Member States of the Caribbean Public Health Agency
(CARPHA) for the acquisition of vaccines. The Caribbean countries were provided with over 650 000
doses in 2021. At local level, the EU provided support in strengthening healthcare systems with new
actions in Haiti (EU grant of EUR 1.3 million), Cuba (EU blending operation) and Barbados (EUR 50
million via an EIB loan). Two blending operations are ongoing in Jamaica and the Dominican Republic.
In 2021, the EU reinforced its engagement on resilience, crisis preparedness and response. The EU
ensured a timely response in the aftermath of the earthquake in the South of Haiti that caused over
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2 000 casualties and left 600 000 people affected. In response to the earthquake, the EU mobilised all
the different emergency tools at its disposal, including the EUCPM. Humanitarian aid was distributed
and following a nexus approach a new EUR 10 million action was put into place to support the most
vulnerable households through resilient agriculture and food security.
Gender equality issues and gender violence have seen particular attention, with an important EU
engagement to stimulate policy reforms and actions at regional and local level to raise awareness
and enhance victim protection.
4.3.2.3. Implementation
The joint Caribbean-EU priorities are outlined in the Caribbean Protocol of the ‘post-Cotonou’
Agreement. In 2021, they were substantiated with the adoption of the Caribbean Window under the
Regional MIP 2021-2027 for the Americas and with the MIPs for Belize, Cuba, Dominican Republic,
Guyana, Haiti, Jamaica and Suriname. In particular, the Caribbean window (EUR 208 million) is
shaped around three Caribbean-EU partnerships jointly agreed with the region: the Green Deal;
Economic resilience and trade; and Governance, security and human development.
To fast track the implementation on pressing political priorities for the region and the EU, new
regional programmes have been adopted under the Caribbean Window in 2021 on the Green Deal
(Euroclima Caribbean) and Digital Transformation (EU-LAC Digital Alliance). These will be linked to
regional Team Europe initiatives, the design of which begin in 2022. The Caribbean Cooperation
Facility will enable the EU to respond to the needs and demands of the Caribbean partner countries.
The EU in its ‘Team Europe’ approach continued to deliver in response to the COVID-19 pandemic in
the Caribbean, though the mobilisation of resources as defined in 2020. Through the build-back-
better approach promoted in the Caribbean by the EU since 2017 following the Irma and Maria
hurricanes, the EU is supporting the region in recovering from the current crisis through a mix of
health, economic and social interventions.
C
ASE STUDY
Programme for Integrated Coastal Zone Management in Guyana (SDG 13)
Guyana has a low-lying coastline of approximately 459 km. The system of sea defences covers about
80 % of Guyana’s coastline. The majority of the population live along the narrow, cultivated coastal
strip which lies below sea level. Guyana’s sea and river defence infrastructure systems are highly
vulnerable to climate change. Maintenance of the sea defence systems is therefore essential to
protect the population and the livelihoods of rural families.
The programme is about climate change adaptation to protect the population in vulnerable, flood
prone areas below sea level. The EU support contributed to the construction, rehabilitation and
maintenance of the sea defences in critical locations. It also enabled investment in nature-based sea
defences and urban storm water drainage management was improved. The integrated coastal
management framework was strengthened with increased representation of women in the Sea and
River Defence Board, the development of six regional Multi-Hazard Preparedness and Response
Plans, and 24 Community Based Disaster Risk Management Plans.
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The EU helped protect nearly 100 kilometres of coastal zones in Guyana. © Federico Suarez.
4.3.2.4. Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters
Haiti
At the beginning of 2021, 4.4 million Haitians were already in need of humanitarian assistance,
suffering from a large-scale food crisis. Political upheavals, social tensions, insecurity, climate hazards
and other factors such as the COVID-19 pandemic have contributed to the further deterioration of
the coping capacities of the already vulnerable population. The overall situation was aggravated
following the earthquake affecting the Southwestern part of the island, which affected 800 000
people. Since June 2021, violence and territorial disputes between armed gangs in the urban area of
Port-au-Prince have increased significantly, with more than 19 000 internally displaced people
registered facing severe protection threats and serious humanitarian access constraints.
Against this background, the EU has mobilised EUR 17 million in 2021 to mitigate the acute food
insecurity in the country and to assist and protect victims of violence. With these funds, the EU also
invested in disaster preparedness in a country which is particularly exposed to multiple sudden onset
natural and climatic disasters and mobilised emergency funding following the 14 August earthquake.
To respond to the earthquake the EU used all the different tools at its disposal, including the
activation of the EU Civil Protection Mechanism and two EU Humanitarian Air Bridge operations.
Commissioner Lenarčič visited Haiti on 16 and 17 September 2021.
The Caribbean
In the Caribbean, the entire population of 45 million people is 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. The socio-economic crisis derived from
the pandemic has provoked a dramatic increase in food insecurity: 10 million people are moderately
food insecure and one million are severely food insecure, especially in the Dominican Republic and
Cuba.
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In 2021, together with the emergency assistance provided in response to the Soufrière volcanic
eruption, the EU has remained engaged to support resilience and disaster preparedness in the region
for a total of EUR 3 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 region that is highly exposed to multiple sudden onset natural and
climatic disasters.
In addition, the EU has also supported emergency response ensuring protection, education and life-
saving humanitarian assistance to vulnerable Venezuelan refugee and migrant populations in the
Caribbean. In response to the pandemic the EU has supported the emergency response in health and
sanitation in Cuba and in the Dominican Republic (EUR 2 million).
4.3.2.5. Crisis response and preparedness
In the Caribbean, actions continued on the engagement with the local civil society to cultivate
leadership for community mediation and peacebuilding in vulnerable communities in
Haiti
under the
2014-2020 Instrument contributing to Stability and Peace.
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4.4.
European Neighbourhood
4.4.1. European Neighbourhood East
4.4.1.1. Introduction (policy developments)
During 2021 the EU continued to develop its relations with eastern partner countries (Armenia,
Azerbaijan, Georgia, the Republic of Moldova and Ukraine) both bilaterally and regionally under the
European Neighbourhood Policy (ENP) and under the Eastern Partnership (EaP) framework. The
Lukashenka regime chose to suspend their participation in the Eastern Partnership framework,
however cooperation avenues continue in order to support Belarusian civil society and citizens. At
the same time, the EU observed with growing concerned the security situation at Ukraine’s borders
and fully supported Ukraine in its efforts to seek exclusively diplomatic and legal means to resolve
the conflict with Russia.
Both the ENP and the EaP are based on common values, mutual interests, and the principles of
shared ownership, responsibility, differentiation, inclusivity and mutual accountability.
The publication of the Joint Communication Eastern Partnership Policy beyond 2020: Reinforcing
Resilience – an Eastern Partnership that delivers for all
100
in March 2020 was followed by a Joint Staff
Working Document ‘Recovery, resilience and reform: post 2020 Eastern Partnership priorities’
101
in
July 2021, further outlining elements of the new agenda which was endorsed at the Eastern
Partnership Summit on 15 December 2021. The new approach is based on recovery, resilience and
reform, with the overriding policy objective of strengthening resilience under two pillars: governance
and investment (including a EUR 2.3 billion economic and investment plan, with a potential to
leverage public and private investments of up to EUR 17 billion). 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 will continue to be
conditional upon the implementation of agreed structural reforms, particularly in the areas of rule of
law, justice and anti-corruption.
In 2021, particularly in the first half of the year, Armenia’s political situation was heavily affected by
the aftermath of the hostilities in and around Nagorno Karabakh. Following a period of political
volatility, early parliamentary elections were conducted on 20 June, which the Organisation for
Security and Cooperation (OSCE) Office for Democratic Institution and Human Rights (ODIHR)
Election Observation Mission assessed as competitive and generally well-managed within a short
timeframe. The re-elected Government has committed to continue with its reform agenda, however
the pace of implementation lagged behind. Regarding the Nagorno-Karabakh conflict, the EU
remained actively engaged including through the efforts of President of the European Council Michel
in political efforts to overcome conflict, create cooperation and an atmosphere of trust between
Armenia and Azerbaijan, with a view to sustainable peace in the region ultimately underpinned by a
comprehensive peace agreement. The EU and Armenia maintained an active political dialogue,
including on issues of democracy, rule of law, fundamental freedoms and human rights.
The post 44-day war situation marked the Azerbaijani political developments in 2021. The situation
remains fragile with clashes along the international border continuing to occur. The EU remains
actively engaged in supporting a peaceful resolution through the personal efforts of the President of
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JOIN(2020) 7 final of 18 March 2020.
101
SWD(2021) 186 final of 2 July 2021.
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the European Council, the continued support of the HRVP and of the EU Special Representative for
the Southern Caucasus and Georgia. Cooperation on connectivity has continued to play an important
role. Azerbaijan remains the EU’s strategic energy partner. Following the completion of the Southern
Gas Corridor (SGC) between Azerbaijan and Europe (30 December 2020) the deliveries of gas to
Europe continued. The negotiations of the new EU-Azerbaijan agreement are back on the bilateral
agenda since Azerbaijan presented their revised negotiation position for the trade part of the
agreement in July 2021. The Azerbaijani economy has continued to recover from the impact of the
COVID-19 pandemic.
In Belarus, the repression of all segments of Belarusian society continued. The Lukashenka regime’s
brutal repression throughout 2021 resulted in more than 900 political prisoners, thousands of
arbitrarily detained citizens, and over 300 civil society organisations were closed down or were in the
process of forced liquidation. Tens of thousands left the country, including the majority of the
democratic opposition, activists and independent journalists. With the forced landing of a Ryanair
flight in May 2021 and with the state-organised instrumentalisation of thousands of vulnerable
migrants for political purposes, the Lukashenka regime’s violations of international law and norms
became a threat to regional security. The EU has been in the forefront of international reaction and
imposed sanctions against individuals and entities responsible for continuous human rights
violations, breaching international aviation safety and instrumentalising migrants. The EU continued
to limit its cooperation with Belarusian authorities to the issues of interest to the EU and Belarusian
society. At the same time, it substantially stepped-up support to civil society, victims of the
repression and defenders of human rights and democracy. The EU outlined a EUR 3 billion
comprehensive plan of economic support to a future democratic Belarus, a clear signal of the EU’s
long-term commitment to the sovereignty and prosperity of the Belarusian people.
Georgia’s domestic political situation continues to be characterised by deep polarisation. With a view
to supporting the parties in identifying a way out of the political impasse, the EU mediated the crisis
leading the parties to sign up to the ‘19 April Agreement’. This ended the parliamentary boycott, but
tensions resumed after the Georgian Dream ruling party withdrew from the agreement. The October
2021 local elections were assessed by OSCE/ODIHR as overall well administered but with significant
shortcomings and polarisation, also aggravated by the arrest and detention of former President
Saakashvili. Most of the reforms in the April 19 Agreement to which the parties committed have not
materialised, in particular reforms of the justice sector, which has also seen backsliding. The
parliamentary boycott by some opposition parties after the 2020 parliamentary elections ended. The
overall implementation of the EU-Georgia Association Agreement is progressing in many sectoral
areas and Georgia continues to benefit from its Association Agreement and Deep and
Comprehensive Free Trade Area (DCFTA). Economic growth returned sharply in 2021 as Georgia
rebounded from the pandemic, with an increase in GDP of over 10 %.
In the Republic of Moldova, the outcome of the parliamentary elections in 2021 has aligned all the
main institutions on a common pro-reform agenda and has brought a positive perspective for the
required structural reforms in line with the EU-Moldova Association Agreement and DCFTA. The new
leadership started its mandate by focusing on reforms, particularly rooting out corruption and
improving the justice sector, and took immediate action to catch up on the implementation of some
key areas of the Association Agreement, enabling European financing for Moldova to be unblocked.
Also, the COVID-19 MFA operation has been successfully completed with the disbursement of the
second instalment of EUR 50 million in October 2021. Progress was impacted by the challenges of the
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COVID-19 pandemic and capacity (weak institutional and human resources in the public
administration) and was followed by a gas/energy crisis in the autumn, engineered by Russia. EU-
Moldova relations visibly intensified in the last months of the year and strong EU support was
provided to help Moldova in the context of the gas crisis.
Ukraine continued reform efforts in 2021, despite growing security concerns due to sustained
Russian military build-up in and around its borders. Notably anti-corruption institutions were
strengthened with the passing of two key laws on reforming and cleansing the High Council of Justice
(HCJ) and the High Qualification Commission of Judges (HQCJ). Two commissions with international
experts, the HCJ Ethics Commission and the HQCJ, were created, which if implemented properly
could lead to a fundamental renewal of the judiciary. The EU, together with international partners, in
particular the G7, continued to support the reform of the judiciary as a priority, however the
Constitutional Court of Ukraine still remained unreformed. While acknowledging satisfactory
implementation of structural measures agreed with the authorities, the COVID-19 MFA operation for
Ukraine could be concluded with the disbursement of the second instalment of EUR 600 million in
October 2021. The EU consistently maintained an active dialogue with Ukraine at the highest political
level. This included the physical Summit in Kyiv in October 2021. The EU passed a strong message of
support on the territorial integrity of Ukraine in the face of the illegal annexation of Crimea and the
ongoing conflict in the east of the country.
4.4.1.2. Working together towards the SDGs
The Eastern Partnership aims to strengthen political and economic relations and helps partners in
achieving the twin ecological and digital transformations, and is based on common values, mutual
interests and shared ownership and responsibility. Through the new agenda presented in July 2021
via the Joint Staff Working Document ‘Recovery, resilience and reform: post 2020 Eastern
Partnership priorities’
102
and endorsed at the Summit in December 2021, the Eastern Partnership
continues to support the delivery of the UN 2030 Agenda and its SDGs.
In the Eastern Neighbourhood the external actions implemented, in cooperation and coordination
with Partner Countries and other stakeholders, aim to assist recovery, strengthen resilience and
support reform. These actions underpin the political priorities of the Commission in achieving the
SDGs as part of the 2030 Agenda for Sustainable Development.
During 2021, the COVID-19 pandemic continued to impact implementation of EU funded projects and
programmes across the Eastern Partnership. The EU put in place additional support for partner
countries to fight the pandemic and support mass vaccination, both through technical support with
the WHO (EUR 40 million programme on vaccine preparedness and deployment and the EUR 35
million EU Solidarity for Health Initiative) as well as provision of vaccines through a Team Europe
initiative coordinated by Poland (EUR 35 million). These actions ensured equitable access to COVID-
19 vaccines and supported an effective response against COVID-19 while contributing to SDG 3 and
longer-term socio-economic and health resilience.
On the regional level the EUR 9.7 million ‘EU4Gender Equality‘ programme 2020-2023 aims to
strengthen equal rights and opportunities for women and men in the Eastern Neighbourhood by
challenging gender stereotypes, work on violence prevention and championing men’s participation in
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SWD(2021) 186 final of 2 July 2021.
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care work. The programme also includes a Reform Helpdesk that supports governments’ reform
work towards equal opportunities for women and men and contributes to SDG 5.
The EU Water Initiative Plus programme (completed in mid-2021) delivered hundreds of knowledge
products and modernised nine water laboratories and contributed to SDG 6. Some forty surveys
were carried out in rivers, ground and coastal waters, covering more than one thousand sites. Due to
this support, water monitoring in the EaP region is now closer to EU standards. The implementation
of national policies and strategies at local level progressed through the development of management
plans for eleven pilot river basins. Such plans identify targeted measures to improve water quality
and efficient water use, estimate the costs of the measures, and provide indicators to monitor their
implementation in the mid-term. More than ten thousand people have been directly involved in
project activities through national policy dialogues, public consultations, numerous outreach events,
and capacity-building activities.
The EU is contributing to develop energy resilience in the Eastern Neighbourhood, through focusing
in parallel on energy and climate policies. Reducing energy dependency, in particular in Moldova and
Ukraine, through green finance, diversification of energy sources and routes, and securing supply by
promoting energy efficiency and renewable energy. Investments in infrastructure for energy and
transport interconnectivity between EaP countries and the EU also address infrastructure
vulnerability to the impact of climate change, environmental challenges and hybrid threats
contributing to SDG 7.
In the Eastern Neighbourhood, the EU funded one hundred and eleven projects under the
EU4Business umbrella initiative to support small and medium-sized enterprises to access finance,
business development services and business enabling environments. By joining forces with
International Financial Institutions and other European and local partners, the EU promoted
diversification of trade, support to the green and digital transitions and creation of quality jobs, thus
contributing to SDG 8.
The EU supported strong cooperation networks among Eastern Partnership countries to foster the
development of resilient digital economies and societies and this contributes to SDG 9. Through its
umbrella programme EU4Digital, the EU launched six pilot projects in the fields of e-commerce, e-
customs and e-signature, and produced guidelines to strengthen start-up ecosystems, cyber-security,
and the take up of digital solutions in the innovation and health sectors. In addition, prices for high-
speed international connectivity in the fields of research and education were reduced by more than
70 % in the region and more than three hundred and nine research and education institutions
benefited from high-speed internet to collaborate with their European counterparts in the context of
the EaPConnect programme.
The number of Covenant of Mayors (CoM) East signatories almost doubled from 257 to 493 within
the last five years. As a result, the network now covers more than 45 % of the population. Moreover,
close to 75 % of these municipalities (360) have committed to the ambitious target of a 30 %
reduction in CO
2
emissions by 2030. In addition, within the framework of the regional programme for
Sustainable Urban Demonstration Projects (SUDeP) complementing the CoM East initiative, 392
projects have undergone energy efficiency measures or moved to renewable energy, including
schools, kindergartens, district heating systems and street lighting systems, benefitting directly over
520 000 users. This resulted in savings of almost EUR 2.19 million per year and contributed to SDG
11.
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The EU supports partner countries to transform the region towards modern, resource-efficient,
clean, circular and competitive economies, while increasing their environmental and climate
resilience, including through more sustainable use of natural resources and contributes to SDG 13.
The programmes implemented support the EaP to meet the challenges of increasing the resource-
efficiency of economies; developing new green jobs and economic opportunities linked to the green
transition; development of local and renewable sources of energy; and managing natural assets to
maximise sustainability. In the area of climate action, the Eastern Europe Energy Efficiency and
Environment Partnership (E5P) supports municipal investments in energy efficiency and
environmental projects. Within the framework of this Fund, the EBRD has extended a EUR 20 million
sovereign loan to Armenia for the benefit of the Yerevan Bus Company to acquire 100 smart energy-
efficient buses to reduce congestion and air pollution.
The EU programme for Improving Environmental Monitoring in the Black Sea (EU4EMBLAS) aims at
improving environmental monitoring in the Black Sea. During 2021, 38 tons of waste were collected
by school pupils from Ukraine through the EU funded Clean Beach campaign and contributed to SDG
14.
With regard to SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in the Eastern Partnership. During the period
2014-2020, there were more than 43 000 short-term mobilities (students and staff) planned and
around 100 000 youth exchanges organized with the region. 597 Erasmus Mundus scholarships were
allocated to students from the region, and 123 capacity-building in higher education projects
coordinated by higher education institutions in the region and 183 Jean Monnet projects were
selected with higher education institutions in the region.
In 2021 there were limited calls open for the regions outside the EU. 34 students from the region
were selected for the Erasmus Mundus Joint Master scholarships. In Jean Monnet Actions, in total 41
projects with applicants from the region were selected. Organisations from the Eastern Partnership
are involved in two Erasmus+ Virtual Exchanges projects selected from the call 2021.
C
ASE STUDIES
Involved fatherhood - right from the start (SDG 5)
The three-year programme EU 4 Gender Equality: Together against Gender Stereotypes and Gender-
Based Violence, funded by the EU and implemented jointly by UN Women and UNFPA, seeks to
strengthen equal rights and opportunities for women and men by shifting social perceptions around
gender roles, tackling gender stereotypes, increasing men’s participation in childcare and other
domestic responsibilities.
Objectives
One main objective is to support men in the Eastern Partnership countries to become more involved
parents, by launching dynamic father-friendly spaces called ‘Father Clubs’, communication campaigns
and trainings.
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Father Day in Kyiv.
©
UNFPA Ukraine/Andrii Kriepkyh.
Results
During 2020 and 2021, almost 2 100 men benefited from 19 ‘Fathers’ Clubs’ established in Armenia,
Azerbaijan, Belarus, Georgia, Moldova and Ukraine. In addition, more than 2.4 million people were
reached by communication campaigns spreading messages about the importance of men’s
caretaking responsibilities. More than 300 health professionals and family centre specialists received
knowledge and skills on engaging men during pregnancy and childbirth and on promoting active
fatherhood.
Bringing South Caucasus one click away from the European market (SDG 8)
E-commerce has developed dramatically in the last decade and especially since the outbreak of the
COVID-19 pandemic. To help companies grow in this new reality, the three-year EU-funded
programme EU4Digital Facility launched three pilot programmes to support small and medium-sized
enterprises from Armenia, Azerbaijan and Georgia in selling local products to European
marketplaces.
Objectives
The pilots aimed at establishing national ‘virtual warehouses’ in the participating countries, in which
sellers can store key information about their products for the electronic exchange of cross-border
data between retailers, marketplaces, delivery operators and customs. The system supported small
businesses in placing their products for sale on well-known online platforms in Germany and in
completing timely cross-border delivery.
Impact
Companies from Armenia (a sock designer), Azerbaijan (a seller of handcrafted wooden accessories),
Georgia (two women-led businesses producing children’s clothing and eco-friendly housewarming
gifts) successfully sold their products to Germany and familiarised themselves with the new EU
legislation on e-commerce. The ‘virtual warehouse’ solution can now be expanded to other Eastern
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partner countries, to facilitate trade with the EU as well as up to 192 countries using the same
standards within the Universal Postal Union.
Recognition of the Ukrainian digital COVID-19 certificate (SDG 9)
The Ministry of Digital Transformation of Ukraine requested support to develop an international
digital COVID-19 certificate for Ukrainian citizens, which would be recognised by the EU. The EU
Delegation to Ukraine and the EU4DigitalUA project responded promptly and provided their support
to develop the needed certificate in line with the EU approach to its own certificates. The EU
recognition of the Ukrainian digital certificate is based on the equivalence Decision by the European
Commission adopted on 19 August 2021
103
and operational as of 20 August 2021.
Objective
The objective of the EU4Digital programme is to support e-services development and re-engineering,
strengthening interoperability and digital government infrastructure to provide more and better
public electronic services by the Ukrainian Government.
Impact
Ukraine’s international digital COVID-19 certificate is fully recognised by the EU: Ukrainian citizens
holding the certificate can use it under the same conditions as holders of an EU Digital COVID-19
Certificate. Ukraine is among the first non-EU countries and the first European Neighbourhood
country whose digital COVID-19 certificate is recognised by the EU. As a matter or reciprocity,
Ukraine has also agreed to accept the EU Digital COVID-19 Certificate for travel from the EU.
Ukraine’s participation in the EU Digital COVID-19 Certificate facilitates safe travel to and from the
EU.
4.4.1.3. Implementation
Human Development
Fostering resilient, gender-equal, fair and inclusive societies is one of the key priorities of the
renewed Eastern Partnership agenda. The EU, its Member States and the Eastern Partner countries
expressed strong political commitment by endorsing the post-2020 priorities at the Eastern
Partnership Summit in December 2021. Reflecting this political key guidance, supporting civil society,
independent media, youth participation in democracy, people-to-people contacts, gender equality
and health resilience are core goals of the EU’s regional and bilateral financial assistance. In early
2021 a EUR 7.85 million regional project EU4Culture started its implementation in all six EaP
countries. The aim is to support culture’s role as an engine for growth and social development across
the region. Through its interregional approach, the project promotes intercultural dialogue and
knowledge exchange, and contributes to improving local governance in the culture sector through
support for regulatory processes and participative policy dialogue.
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Commission Implementing Decision (EU) 2021/1380 of 19 August 2021
establishing the equivalence, for the
purpose of facilitating the right of free movement within the Union, of COVID-19 certificates issued by Ukraine
to the certificates issued in accordance with Regulation (EU) 2021/953 of the European Parliament and of the
Council (Text with EEA relevance).
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The regional EU4Youth programme entered its third phase in 2021 with the signature of a EUR 14.4
million agreement with the Central Project Management Agency of Lithuania. EU4Youth phase III
focusses on youth employment and entrepreneurship, including a grant scheme for projects on
digital and green aspects, and a component to continue capacity building of Public Employment
Services and other key stakeholders around the EU Youth Guarantee experience. Scholarships for
students to study at the College of Europe in Natolin are also included in the programme. Also in
2021 the 5th Eastern Partnership Youth Forum with the Slovenian presidency under the title ‘Youth
participation in democratic processes’ and the first edition of the EU4Youth days were held. The EUR
6.4 million contribution agreement for phase II of the EaP European School in Georgia started its
implementation in January 2021.
Building on the EU’s rapid response to the COVID-19 pandemic in the EaP in 2020, the EU put in place
in early 2021 a EUR 40 million three-year regional programme to support the preparedness and
deployment of COVID-19 vaccines in the six EaP countries. This programme’s objective is to reduce
COVID-19’s overall impact on health by supporting partner countries to increase vaccine uptake,
including in rural areas. The programme facilitates the deployment of COVID-19 vaccines, for
instance by delivering over 100 vaccine freezers, strengthening the capacity for mass vaccination and
trained over 26 000 health workers. Furthermore, it helped improve mobility by supporting Armenia,
Georgia, Moldova and Ukraine to join the EU Digital COVID-19 Certificate system. To complement
this action, the EU has put in place a Team Europe initiative coordinated by Poland to set up an
innovative arrangement supporting EU Member States in the delivery of COVID-19 vaccines.
In
Armenia,
the EU supported 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. The EU supported
Armenian civil society organisations with 12 projects aiming to improve their resilience, sustainability
and capacity for innovation, enabling them to play a pivotal role in deepening democracy and
support vulnerable populations. The European Media Facility in Armenia kicked-off in 2021 to
support independent media to become more professional, financially sustainable and to fulfil its
democratic role by offering reliable information to the population. In
Azerbaijan
the Education
Support programme was completed. This programme has helped to reform and modernise the
education sector, including increasing access to lifelong learning and helping to establish community-
based preschool centres for 10 000 children in 50 rural communities across ten regions of Azerbaijan.
In
Belarus,
in line with the Council Conclusions of 12 October 2020
104
, the EU has redirected its
support away from the Belarusian authorities and intensified cooperation with non-state
stakeholders, including civil society, independent media and youth. The EU further supported
activities aimed at providing possibilities to study abroad for Belarusian students, both through
support to an advanced training and learning programme and by supporting the European
Humanities University. In
Georgia,
implementation of the Skills Development and Matching for
Labour Market Needs (Skills4Jobs) programme continued with the disbursement of the third tranche
of EUR 3.8 million supporting job intermediations and training of Vocational Education and Training
teachers. In
Moldova
the construction of the EU4Innovation centre in Cahul was started and support
to STEM education was actively promoted.
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Council Conclusions 11661/20 of 12 October 2020.
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During 2021, EU expertise mobilised through the TAIEX instrument supported the authorities in
Azerbaijan
in maintaining the quality of teaching in primary, secondary and tertiary education in the
virtual environment. The three separate TAIEX events focused on the challenges of the virtual
assessment process in interactive teaching methods and facilitating student engagement due to the
COVID-19 pandemic. A twinning project between Moldova and a consortium from Finland, Estonia
and Lithuania to enhance the quality and effectiveness of the Vocational Education and Training
system completed successfully as planned in May 2021. The twinning providing valuable assistance
to the Ministry of Education, Culture and Research and to VET institutions across the country to
implement the national VET strategy 2013-2020.
Green Deal
The implementation of the European Green Deal is a priority and the EU, its Member States and the
Eastern Partner countries expressed strong political commitment to work together towards the
green transition as one of the key goals for the Eastern Partnership’s (EaP) post-2020 agenda and its
economic and investment plan (EIP). During the Third EaP Ministerial Meeting on Environment and
Climate in June 2021 the discussion focussed on policy measures necessary for implementing this
priority. The Joint Staff Working Document ‘Recovery, resilience and reform: post 2020 Eastern
Partnership priorities’
105
identified environmental and climate resilience as a priority. This was
confirmed by the Eastern Partnership Summit in December 2021. The Regional multiannual indicative
programme (MIP) for the post-2020 period allocates 20 % of the overall budget for regional
programmes to the priority on environmental and climate resilience. The importance of this priority
is also echoed in the EIP with around half of the planned investments being green investments.
Within the framework of regional cooperation, policy dialogue, institution building measures,
blending, and pilot projects have continued with a focus on climate adaptation and mitigation,
environmental protection and the green energy transition. EU4Environment has been assisting SMEs
in the transition to the circular economy based on resource efficient and cleaner production. The EU
Water Initiative Plus, completed in mid-2021, has brought water monitoring in the EaP region closer
to EU standards. EU4Climate assisted Armenia, Belarus, Moldova and Azerbaijan in preparing their
updated Nationally Determined Contributions (NDCs). In Georgia and Ukraine, EU4Climate assisted
with awareness-raising and communicating the revised NDC targets. All EaP countries increased their
ambition in reducing GHG emissions by 2030, compared to the previous NDC cycle. EU4Energy has
further strengthened legislative and regulatory frameworks as well as evidence-based policy design
and promoted a conducive environment for sustainable energy investments.
The EU has also been working on integrating electricity grids between Ukraine and Moldova and the
EU. In
Ukraine,
a EUR 53.4 million project (EU contribution EUR 9 million) will develop good
governance in the Ukrainian energy sector, support the restructuring of the utility provider
Ukrenergo, and rehabilitate nine sub-stations in Ukraine’s South-Western Power Grid. In
Moldova,
a
EUR 270.8 million project (EU contribution EUR 40.8 million) will finance an electricity substation and
transmission line, as well as upgrading existing infrastructure, to strengthen the connection with
Romania. This will contribute to the stability and efficiency of the Ukrainian and Moldovan electricity
grids, contributing to diversification of supply and increased energy security. In 2021, the EU
contributed an additional EUR 50 million to the Eastern Europe Energy Efficiency and Environment
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Partnership (E5P) to encourage municipal investments in energy efficiency and environmental
projects in Ukraine, Georgia and Moldova. Support to environmental monitoring in the Black Sea
(EMBLAS) continued through a new phase of the programme. This goes hand in hand with a newly
adopted EUR 3.5 million programme on Strengthening Environmental Resilience and Maritime Safety
for Black and Caspian Sea riparian states.
2021 also saw the signature of the EU4Environment Water and Data programme amounting to EUR
12.75 million. The programme is closely linked to the regional Team Europe initiative on Zero
pollution. Following the success of the first two phases of the Global Covenant of Mayors initiative, a
new EUR 5.3 million phase was launched at the end of 2021 to enable local authorities to develop
and implement sustainable energy and climate actions. In line with the European Green Deal, the EU
Green Agriculture initiative in
Armenia
was implemented, in cooperation with the Austrian
Development Agency, and focused on organic agribusinesses, supporting sustainable agriculture,
empowering small farmers, promoting gender inclusiveness and healthy lifestyle, tackling rural
poverty, and fighting climate change among other objectives. In line with the EIP flagships for
Armenia, the EU supported investment in smart mobility and sustainable urban transport through
the procurement of 100 new buses for Yerevan. In 2021, the EU launched a new project to assist the
Ministry of Energy of
Azerbaijan
with the enforcement of the Law on the Efficient Use of Energy
Resources and Energy Efficiency, drafting secondary legislation, establishing and enforcing the
regulatory framework for energy efficiency in new and existing buildings. In addition, it assisted with
introducing energy certificate schemes for buildings and energy labelling for products related to
energy consumption and requirements for eco-design.
In
Georgia
under the E5P programme renovation work to improve energy efficiency in 22 public
buildings has been completed and is continuing in several more. In
Moldova
through the E5P
programme, eleven new trolleybuses that operate on electricity and use batteries have been
delivered to Balti, Moldova’s second largest city. With the new vehicles, the city has expanded
existing routes and has improved the overall efficiency of the service as well as reducing air pollution
and GHG emissions. In Chisinau, the rehabilitation programme involving energy efficiency measures
for 22 public buildings (and potentially residential buildings) is progressing. The investments focus
mainly on improvements to the building envelope and Heating, Ventilation, and Air Conditioning
systems but also envisage demand side management measures.
TAIEX contributed to the European Green Deal through a dedicated series of flagship events on the
Green Deal and Green Recovery targeting all NEAR countries including those in the Eastern
Neighbourhood. The event series informed the enlargement and neighbourhood partners about the
EU policies and outlined what the Commission is doing to make Europe the first climate neutral
continent by 2050. Other topics included the redesigning of economic and environmental policies in
line with sustainable production and consumption principles as well as food safety, reduction of food
losses and re-use of water for agricultural purposes. Through Twinning, Czech Republic and Finland
supported the Ministry of Environment of Armenia to strengthen the capacity of the Ministry to
comply with the commitments taken under the Comprehensive and Enhanced Partnership
Agreement (CEPA) and its roadmap on environmental conservation and biodiversity.
Green Deal Success Story
During 2016-2021, the European Union Water Initiative Plus programme has assisted the Eastern
Partnership (EaP) countries – Armenia, Azerbaijan, Belarus, Georgia, Moldova and Ukraine – to adopt
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and implement a systemic approach to water management. The EU Water Framework Directive and
the Water Convention served as major references for carrying out regulatory reforms, enhance
public participation, scale upriver basin management planning and modernise monitoring.
Transboundary cooperation was a central element of the programme. The EU made these ground-
breaking achievements possible by providing a EUR 23.5 million grant. The Austrian Development
Agency and the French Artois-Picardie Water Agency co-funded the programme with EUR 1 million.
Follow-up work on improving water management in the EaP countries will continue in 2022. This will
be instrumental for the EIP to deliver its promise of cleaner and more accessible water for people
and nature. As a result of this programme, five agreements on transboundary water cooperation
(Dniester, Kura, Khrami-Debeda, Neman and Western Dvina basins) were further developed.
Hundreds of knowledge products and analytical equipment were delivered and nine water
laboratories in partner countries modernised. To provide transparent data on the status and use of
water resources, water information systems were modernised and 44 surveys were carried out in
rivers, ground- and coastal waters, covering over 1 000 sites. Thanks to the programme, around 30
million people (40 % of the countries’ population) are benefiting from 11 new or revised River Basin
Management Plans and water monitoring that is closer to EU standards.
Sustainable Growth and Jobs
In 2021, the EU adopted an ambitious economic and investment plan (EIP) for the Eastern
Neighbourhood, which has the potential of mobilising up to EUR 17 billion of public and private
investments to support socio-economic recovery and pursue the green and digital transitions. Within
this framework, the EU focused its financial and technical support on further improving SMEs' access
to finance and on providing advisory services to help them adapt to the new reality of running a
business in a context of sanitary restrictions and accelerate their digital transformation. The EU’s
overall objective remained that of helping its Eastern partners move towards even more diversified
and integrated economies, attracting investments and creating jobs.
The EU's support contributed to improving the investment and business environment and unlock
SMEs growth potential. Over 1 222 business organisations received EU assistance through the
EU4Business initiative. EU financial assistance has remained instrumental in addressing gaps in access
to finance and had benefited over 71 000 SMEs (around 63.9 % in DCFTA countries) in 2020 (latest
figures available). More than 945 000 jobs have been created or sustained. Out of EUR 1.6 billion in
loans mobilised from EU support since the end of 2016, around 32 % (EUR 520 million) have been in
local currency. The Structural Reform Facility supported the development of action plans to develop
non-banking alternatives for SME financing and credit registries in all six partner countries. To
improve resilience of local communities and foster the creation of jobs, 13 new pilot projects for
sustainable local economic development have been launched in selected municipalities under the
programme 'Mayors for Economic Growth'. Twenty other municipalities were selected to receive
targeted mentoring and funding opportunities to develop portfolios of investments addressing local
economic development challenges. The EU continued to provide aid for trade to its Eastern partners,
notably through the activities of the EaP Trade Helpdesk that aims at easing access to tariff
information and trade statistics and by providing targeted support to SMEs in export-oriented sectors
in the context of the ready2trade project. The EU also supported business support organisations
(such as chambers of commerce) to facilitate business relations between EU importers and investors
and EaP producers. As a result, the number of companies from DCFTA countries exporting to the EU
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has increased significantly between 2014 and 2021: by 65 % in Georgia, by 70 % in Moldova and by
42 % in Ukraine.
During 2021, the EU continued its support for shared and inclusive economic growth in
Armenia
through SMEs development under the framework of the EU4Business initiative and in line with the
EIP flagships for the country. Support was provided to SMEs in sectors such as agriculture, tourism,
technology development and social entrepreneurship with projects covering access to skills and
knowledge, access to finance and markets targeting start-ups and new businesses, with particular
focus on the three northern pilot provinces of Shirak, Lori and Tavush. The EU-Armenia SME Fund
continued its fundraising activities in 2021 and by the end of the year increased its fund size to USD
50 million. The EU-EBRD Support to the State Commission for the Protection of Economic
Competition in Armenia was launched in February aiming to enforce competition policy in the
country and provide capacity building to the State Commission.
Supporting sustainable economic diversification of
Azerbaijan
remained an underlying objective of
the EU’s assistance in this sector. In 2021, the Support to Rural and Regional Development
programme was successfully completed. During its implementation, the programme covered 28
regions and supported market-driven income and employment-generating activities in rural areas of
Azerbaijan as well as helped to build the capacity of national and local authorities in socio-economic
development. In addition, the EU launched the EU4Lankaran project (EUR 5 million) to enhance the
competitiveness and value-added of the fruit and vegetable sector of the Lankaran economic region,
while addressing the negative economic consequences of the COVID-19 pandemic. The EU also
launched a new project with the World Bank of over EUR 5 million to provide a series of technical
assistance, analytical service and other type of advisory activities aligned with the priority areas set
out in the EU-Azerbaijan Partnership Priorities.
Following the October 2020 EU Council Conclusions, the EU programmes supporting private sector
and real economy in
Belarus
have been re-focused on SMEs support. The EBRD implemented ‘Advice
for Small Business in Belarus’, providing direct support to SMEs, has been extended until the end of
2022. A follow up phase engaging EUR 4 million was signed in December 2021. Supporting SMEs to
reap the full benefits of the DCFTA in
Georgia
has been a top priority for EU cooperation. Through
the OECD implemented project ‘From Policies to Actions’, the EU has supported the development
and implementation of the new SME Development strategy 2021-2025. The strategy is in line with EU
priorities and includes important aspects such as women entrepreneurship, digitalisation and green
growth. In 2021, 229 Leader local development projects were concluded in
Moldova
following EU
funding under the ‘Development of rural areas – Leader approach for rural prosperity’ project. 53 %
of the projects were implemented by women, benefitting 165 rural communities and 270 jobs were
created, of which 72 are expected to be permanent.
TAIEX contributed to an economy that works for people through a dedicated workshop on ensuring
vulnerable groups’ access to social services during the pandemic in cooperation with Azerbaijan. EU
Member State experts shared their experiences on the provision of home-based social services to
vulnerable groups with the aim of mitigating and preventing the negative effects of the COVID-19
pandemic. In addition, a Twinning project in Georgia led by the Slovak Republic together with Estonia
and Spain supported the drafting of a new legal framework to improve employment conditions as
well as health and safety at work.
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Digitalisation, Science, Technology and Innovation
In line with the July 2021 Joint Staff Working Document ‘Recovery, resilience, and reform: post 2020
Eastern Partnership priorities’
106
, the EU has committed to further investment to support the resilient
digital transformation of its Eastern neighbours. At the Eastern Partnership Summit of 15 December
2021, the EU, its Member States and the Eastern Partner countries confirmed this ambition. The
renewed Eastern Partnership agenda includes a set of digital flagship initiatives and is underpinned
by an EIP, which aims to mobilise potential public and private investments of up to EUR 1.5 billion to
support the development of resilient digital economies and societies.
In 2021, the Commission actively contributed to the post-2020 Eastern Partnership priorities in the
field of digital transformation by supporting key milestones in the areas of digital infrastructure, e-
governance, digital economy and innovation and cyber-resilience. Under the umbrella programme
EU4Digital, the EU facilitated ongoing work for the preparation of a Regional Roaming Agreement
and Regional Spectrum Agreement, which will contribute to reduce roaming prices in the region by
almost 90 % in the next five years and facilitate the deployment of 5G technology upon signature.
Procurement activities carried out under the EaPConnect programme, have led to the prices for high-
speed international connectivity for research and education institutions dropping by 70 % in the
region. The programme also supported the launch of two ‘digital highways’ bringing together
research and education communities in Moldova and Ukraine with the EU, through ultra-fast
connectivity (up to 100 Gigabits per second).
To extend the benefits of the EU Digital Single Market to the Eastern Partnership region, the
EU4Digital Facility completed six pilot projects in the fields of e-signature, e-commerce, and e-
customs, and produced guidelines in the areas of innovation, digital skills and e-health. The
EU4Digital Facility also developed an Eastern Partnership start-up ecosystem platform, gathering
more than 2 500 digital start-ups and connecting them to European and international investors.
Common cyber-security guidelines were developed for the entire EaP region through the Cyber-East
programme which supported capacity-building activities to strengthen national cybersecurity
governance and legal frameworks in line with the Directive on security of network and information
systems (NIS Directive).
In
Armenia,
a new digitalisation strategy was adopted in February 2021, however following the
elections in June 2021 a revision process was launched for the existing digitalisation strategy. Within
the framework of EU assistance to support e-justice in Armenia, a new project on Development and
Introduction of E-Justice Solutions in Armenia, started in November 2021.
Azerbaijan
continued
benefiting through activities under the regional EU4Digital programme which included promoting
and developing digital skills, competence frameworks and skills assessments across different sectors.
In
Belarus,
support to the digital thematic area is provided under EU4Digital and EaP Connect II.
Belarus can still participate in these programmes as long as this benefits the people and does not
imply engagement with the Belarusian authorities, as per the October 2020 Council Conclusions
107
. In
line with the EIP, new initiatives have been launched to step up the digital transformation in
Georgia.
The European Investment Bank (EIB) and Georgia signed a loan of EUR 34 million in late 2021 to
support middle-mile connectivity by deploying fibre data cables in 1 000 settlements across the
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Council Conclusions 11661/20 of 12 October 2020.
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regions. This is directly linked to the implementation of EIP Flagship project four. In
Moldova,
the
EU4Digital Initiative supports the digital reform agenda with a range of actions to promote key areas
of the digital economy and society. Several pilot projects were implemented among them is the
eDelivery pilot on electronic invoice exchange using the trusted and secure eDelivery channel. The
eCustoms pilot will allow automatic exchange of non-confidential information between the Customs
authorities of Moldova and Romania relating to empty trucks at one border-crossing point. In
October 2021, Moldova became associated to Horizon Europe, the EU research and innovation
programme (2021-2027). Moldovan researchers and innovators can now participate in the EUR 95.5
billion programme under the same conditions as entities from Member States.
TAIEX contributed to the general objective of a Europe fit for the digital age through a dedicated
flagship event series on Digital policy targeting all NEAR countries including those in the Eastern
Neighbourhood. The events informed our partner countries about the EU Digital policy. In addition, a
dedicated regional Workshop was organised with the Eastern Partnership countries focused on
critical cyber infrastructure and the 5G toolbox. Finally, a dedicated Twinning project implemented
by Lithuania and Latvia was concluded to improve the market access and interconnections of
electronic communications networks and associated facilities in Ukraine.
In 2021, EU4DigitalUA continued to implement capacity building, communication and data protection
and interoperability, e-services and cybersecurity projects that had started in 2020. The programme
is aimed at improving the efficiency and security of public service delivery and their access to citizens
and businesses that would result in more and better public electronic services provided by
Government authorities. EU4DigitalUA helps
Ukraine
with building the resilience of the Ukrainian
governmental data infrastructure, backup data centres and the migration of important state data
into cloud solutions, further developing electronic services needed for the population and
businesses. Starting from October 2021, the EU-funded Digital policy support to Ukraine technical
project provides support to the Ministry of Digital Transformation of Ukraine and the National
Regulatory Commission for Electronic Communications, Radio Spectrum and Postal Services of
Ukraine (the national regulator) in updating and implementing the commitments in the area of the
digital economy under Appendix XVII-3 of the EU – Ukraine Association Agreement /DCFTA. Public
authorities with a key role in Ukraine’s digital economy are being supported in strengthening their
institutional capacity to formulate, adopt and implement digital economy policy. The regulator is
being supported in its further strengthening of its independence, as well in the analysis of markets
and protection of consumer rights under the electronic communications framework.
Migration
In line with Council Conclusions of October 2020
108
, in Belarus most activities in the area of migration
were suspended or partially suspended. Since summer 2021, and in response to the EU’s united
support for the democratic aspirations of the people of Belarus, the Lukashenka regime has engaged
in the state-sponsored instrumentalisation of migration, in a hybrid attack on the EU. In response,
the EU and its agencies have mobilised in support of the affected Member States, and provided
assistance to stranded migrants, including in cooperation with organisations such as the International
Organisation for Migration, the United Nations High Commissioner for Refugees, and the
International Committee of the Red Cross. After a peak period in November, the migration situation
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Council Conclusions 11661/20 of 12 October 2020.
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stabilised. This is thanks in part to diplomatic outreach by the Commission and EEAS to halt migration
flows at source, thus limiting the numbers arriving in Belarus. In parallel, the Council has expanded
the EU’s Belarus sanctions regime to target those responsible for or linked to the instrumentalisation
of migration.
Governance, Peace and Security
Promoting reforms in good governance and security, in line with EU values, strengthening the rule of
law and fighting corruption and organised crime are part of the governance pillar of the post-2020
Eastern Partnership agenda. Addressing these issues is a necessary precondition for boosting
economic and social development in the region. It contributes to improving the business
environment and boosting investors’ confidence. This was endorsed by the EU, its Member States
and partner countries at the December 2021 Eastern Partnership Summit. This comprehensive
agenda based on the respect for democracy, human rights and fundamental freedoms, and equality
also plays an important role in building resilience in partner countries and is supported through all of
the EU’s tools.
Good governance, rule of law, fundamental values and fighting corruption remain the cornerstone of
EU-Armenia relations. Following the elections in June, the Government remains committed to an
ambitious justice and anti-corruption agenda, despite implementation delays due to COVID-19 and
hostilities in and around Nagorno-Karabakh. Following the adoption of the Law on the Anti-
corruption Committee in spring 2021, the Committee was established and the Chairperson selected
in September. The EU continues to be the largest donor of financial assistance to the justice sector in
Armenia, playing an important role in donor coordination and policy dialogues. The EU’s ongoing
budget support to the justice sector focused in 2021 on strengthening the institutional capacity of
the justice and anti-corruption sector in particular the newly established/reformed bodies as well as
enhancing the quality of justice in line with the requirements under CEPA and EU best practice. Anti-
corruption efforts are also supported by the EU-Council of Europe regional initiative Partnership for
Good Governance to combat money laundering and terrorist financing. The EU’s technical and
financial support helped Armenia on the police reform process with a new Police Reforms strategy
and action plan being developed. In July 2021, the new patrol service was introduced and launched in
Yerevan with around 700 patrol officers trained through EU technical support and in December an
additional 590 officers took the training in the Lori and Shirak provinces. The EU funded project
Accountable Institutions and Human Rights in Armenia started in May 2021 and supports strategic
reforms on accountable and effective service delivery in the field of security/police, human rights
promotion and constitutional reform. An additional assistance package of EUR 10 million had been
allocated and committed to support the conflict-affected populations in Armenia and Azerbaijan
following the escalation of hostilities at the end of 2020.
In
Azerbaijan,
the EU, through several ongoing projects, continued providing assistance to increasing
the efficiency of the judiciary, development of alternative dispute resolution, conducting penitentiary
reform and capacity building of administrative and commercial courts as well as reinforcing overall
access to justice. Since 2018, with the help of the EU, more than 6 700 vulnerable persons received
free legal aid across the country. In 2021, the EU implemented two projects on public financial
management with a focus on improving management of public expenditures and revenue as well as
building institutional capacity in resolving tax disputes for a credible, independent and timely
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resolution of taxpayer objections, thereby strengthening public confidence in the tax system and
reducing opportunities for corruption and abuse.
In
Georgia
the Security, Accountability and Fight Against Crime (SAFE) programme continues
supporting civilian oversight of the security sector and improved border management. The EU is also
contributing to the advancement of good government in areas such as anticorruption and public
finance management. The EU monitoring mission (EUMM) remains on the ground along the
administrative boundary lines with the break-away territories. In
Moldova
further support was
provided for strengthening rule of law, justice and security by supporting the justice reform process,
ensuring that the basic rights such as access to justice and the right for an effective remedy are
better respected and the legal profession is strengthened. Despite the challenges faced, the EU
border assistance mission (EUBAM) continued delivering results and contributes to security across
borders. EUBAM supported confidence-building measures related to the Transnistrian region,
promoted integrated border management, and contributed to the fight against organised crime and
trafficking. During two cross border operations 8.5 million cigarettes and 235 kg of heroin were
seized.
4.4.1.4. Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters
The last monitoring of the Eastern Partnership ‘20 Deliverables for 2020’ framework highlighted the
engagement of partners to strengthen preparedness and response capabilities by taking part in
exercises and expert exchanges, as well as developing specific guidelines and tools in cooperation
with the EU Civil Protection Mechanism.
Under the new Eastern Partnership agenda, it is foreseen to continue cooperation with Eastern
partners on civil protection matters, and specifically to enhance their capacity to prevent, prepare,
and respond to natural and man-made disasters, and further enhance cooperation among the
partner countries and with the EU Civil Protection Mechanism.
After more than seven years of conflict, the security situation in eastern Ukraine remains volatile.
Since the July 2020 ceasefire, there have been fewer hostilities and civilian casualties. However, in
2021, daily incidents continued to cause damage to housing, water and electricity supply, schools,
and health facilities, leaving some 3.4 million people in need of humanitarian assistance. One-third of
all people in need are older persons, making this conflict the ‘oldest’ humanitarian crisis in the world.
By the end of 2021, the build-up of over 100 000 Russian troops at the border with Ukraine led to an
escalation of tensions and increasing fears over humanitarian consequences in Ukraine and
neighbouring countries. Since the beginning of this new crisis, the EU has been preparing for every
scenario, working together with donors and partners on contingency and preparedness.
Case study – Health assistance in Ukraine
Nina suffers from high blood pressure and cardiovascular
disease. She lives in Zolote 3, a town close to the ‘line of
contact’, which divides eastern Ukraine into areas under
the Government’s control and those outside it. There is
no local doctor, and like Nina, many older residents
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struggle to access healthcare due to their reduced mobility. Thanks to the ACCESS Consortium
109
,
funded by the EU, mobile medical teams regularly visit their town.
The EU is one of the largest humanitarian donors to the crisis in eastern Ukraine, with an allocation
of EUR 28.9 million in 2021. The EU humanitarian funding, delivered through UN agencies, non-
governmental organisations and the International Committee of the Red Cross, helped people access
healthcare, including better preparation and response to the COVID-19 pandemic. The funding also
supports the rehabilitation of damaged houses, schools, and hospitals. It provides affected people
with the means to meet their basic needs and access safe water, education in emergencies, and
protection services including legal support. In 2021, EU funded humanitarian assistance reached
more than 750 000 people in Ukraine’s government-controlled areas and in the non-government-
controlled areas of Luhansk and Donetsk.
In 2020, the six-week long conflict over Nagorno Karabakh between
Armenia and Azerbaijan
caused
casualties, damage and displacement of the local population. The fighting forced hundreds of
thousands to flee their homes for security and safety reasons. In 2021, The EU continued responding
to the impact of the conflict with EUR 13 million in humanitarian support to address the needs of the
most vulnerable people affected by the conflict in both countries. The emergency support helped EU
humanitarian partners deliver basic assistance including food, hygiene and household items, multi-
purpose cash assistance, shelter, education in emergencies, health and psychosocial support, medical
equipment, and other urgent assistance to older persons, women and children. The funding also
included early recovery aid by providing livelihoods support helping conflict-affected people rebuild
their lives, as well as humanitarian demining in populated areas, and mine risk education.
Case studies – Armenia and Azerbaijan
‘We mainly think about how to put food on the table,’
says Arpine, a mother of three. After leaving Nagorno-
Karabakh during the 2020 conflict, the family still
struggles to make ends meet in Armenia. Thanks to the
EU-funded organisation
People in Need,
eco-friendly
briquettes helped them stay warm during the winter.
© European Union/ECHO, 2021
Matanat's husband was one of the civilian victims of the 2020 Karabakh
conflict. Matanat, a mother of three, received blankets, hygiene kits and
winter gloves from the
United Nations High Commissioner for Refugees
(UNHCR),
funded by the EU, at the onset of winter in Azerbaijan.
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eastern-ukraine/
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As for Belarus, the EU has promptly allocated EUR 700 000 in humanitarian funding to address the
humanitarian impact of the migration crisis, which escalated in November 2021, leaving many
vulnerable refugees and migrants, including families and children, in dire conditions without basic
necessities and protection. The funding allowed humanitarian partners to deliver much needed relief
assistance, including food, hygiene kits, blankets, and first aid kits, to people stranded at the EU
external border with Belarus, as well as basic assistance for those accommodated in the temporary
reception centre in Grodno, especially during the cold late autumn and winter period of 2021. The EU
continued to advocate for dignified shelter solutions as well as proper humanitarian access to those
in need.
4.4.1.5. Crisis response and preparedness
EU crisis response actions continued to support efforts by civil society actors to build peace, promote
credible reforms and increase accountability for the systematic violation of human rights.
The EU continued its support to finding peaceful solutions to conflicts in the
South Caucasus,
including the conflict between
Armenia
and
Azerbaijan.
Confidence building measures were
implemented to support EU facilitated negotiations between the parties.
Following the falsification of the August 2020 presidential election in
Belarus,
the EU has continued
to focus its assistance on civil society and away from the central authorities. The Commission service
for Foreign Policy Instruments provided short-term bridging assistance to help media and civil society
ahead of more substantial complementary support to local democracy activists and organisations
from other parts of the Commission.
The EU monitoring mission in
Georgia
(EUMM Georgia) is a civilian Mission, funded under the
Common Foreign and Security Policy budget. It provides civilian monitoring of the Parties' actions, to
contribute to stabilisation, normalisation and confidence building, whilst also contributing to
informing European policy in support of a durable political solution for Georgia.
Following the energy supply crisis in
Moldova
in late 2021, an emergency budget support measure
was granted, to mitigate the effect of energy price rises on the most vulnerable consumers, and to
help build the energy reform capacity of the Government of Moldova.
In
Ukraine,
EU support to the important work of the OSCE special monitoring mission continued
through crisis response actions. Support to dialogue and peace efforts, as well as mine action in
conflict affected parts of the country, also continued during the year. Assistance to Ukraine’s efforts
in tackling disinformation continued and was further enhanced through support to the establishment
of a dedicated government-run Centre for Strategic Communication and Information Security.
Through financing via the CFSP budget, the EU Advisory Mission for Civilian Security Sector Reform in
Ukraine
(EUAM Ukraine) continues to assist Ukraine in the field of civilian security sector reform,
including police and the rule of law. In support of Ukraine's commitments to security sector reform,
EUAM is mentoring and advising relevant Ukrainian bodies on the development of renewed security
strategies and in the consequent implementation of relevant comprehensive and cohesive reform
efforts.
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4.4.2. European Neighbourhood South
4.4.2.1. Introduction (policy developments)
The year 2021 was marked by the adoption in February of a Joint Communication proposing an
ambitious and innovative
new Agenda for the Mediterranean
110
and related Council Conclusions in
April
111
.
Many political, socio-economic and security challenges in the Southern Neighbourhood remain to be
addressed, while some have been further exacerbated in 2021 by the COVID-19 pandemic.
Unresolved conflicts continued to weigh heavily on the economies and societies of the region. The
new Agenda will help seize opportunities together with our Southern Neighbourhood partners,
making the most out of the green and digital transition, and creating inclusive societies and
economies for all, especially for women and youth.
The new Agenda focuses on five priority areas: Human development, good governance and the rule
of law; Strengthen resilience, build prosperity and seize the digital transition; Peace and security;
Migration and mobility; and Green transition, climate resilience, energy, and environment.
A dedicated economic and investment plan (EIP) for the Southern Neighbours adopted with the Joint
Communication aims to ensure that the quality of life for people in the region improves and the
economic recovery, including following the COVID-19 pandemic, leaves no one behind. The plan
includes preliminary flagship initiatives. Under the EU's new Neighbourhood, Development and
International Cooperation Instrument (NDICI-Global Europe), up to EUR 7 billion for the period 2021-
2027 will be allocated to its implementation, to potentially mobilise up to EUR 30 billion in private
and public investment in the region over the next decade.
EU and Southern Neighbourhood partners confirmed their commitment to the new Agenda with a
specific focus on Green Transition at the ministerial conference which took place in Barcelona on 29
November, organised back-to-back with the 6th Union for the Mediterranean (UfM) Regional Forum.
The work for the preparation of bilateral political frameworks (Partnership Priorities), identifying
jointly agreed priorities to guide the relations between the EU and the Southern Neighbourhood
partners, continued in 2021. The preparation of the Partnership Priorities considers the priorities of
the New Agenda. While the old priorities were extended at the end of 2020 until new documents are
agreed and adopted, the preparation of multiannual programming documents under the new
financial instrument architecture of NDICI-Global Europe also progressed in 2021.
Tunisia
has been going through a delicate political and socio-economic situation in 2021 aggravated
by the pandemic. Given such a dire context, a first instalment of EUR 300 million in the context of the
MFA operation was disbursed in June 2021 to address the consequences of the pandemic. Work in
sectoral technical sub-committees continued in the framework of the Association Agreement in the
first half of the year, while contacts at various levels were maintained following the announcement
by the Tunisian President on 25 July to dismiss the Prime Minister and suspend parliamentary
activity.
The EU-Morocco dialogue and cooperation continued with the organisation of several sectoral sub-
committee meetings and regular exchanges of information. Discussions on the two main EU-Morocco
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JOIN(2021) 2 final of 9 February 2021.
111
Council Conclusions 7931/21 of 19 April 2021.
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partnerships - green deal and digital- progressed well, with the first almost finalised. However, there
has been no advance in adopting long-term Partnership Priorities.
EU relations with
Egypt
continued to expand in 2021 through various political and policy
engagements. President of the European Council Michel and President el-Sisi were in regular
communication. The High Representative Vice-President (HRVP) handed to the Egyptian Foreign
Minister in July 2021 the EU’s proposal for the EU-Egypt Partnership Priorities (2021-2027), followed
by subsequent negotiations. At the 7th EU-Egypt Association Committee in October both sides took
stock of the latest subcommittee cycle and exchanged views on shared interests and challenges. A
first High-Level Political Dialogue took place in October and the 3rd Senior Officials Migration
Dialogue in November, both in Cairo.
EU-Algeria Association Council in December 2020 confirmed the renewed commitment to deepening
the partnership to achieve its full potential. Institutional meetings between EU and Algeria continued
with several sectoral EU-Algeria sub-committee meetings taking place throughout the year. The EU is
negotiating the revised partnerships priorities. Energy, strengthening stability in the region,
governance and human rights, economic cooperation and trade, the environment, and migration
remain mutual interests. However, despite a tentatively mutually agreed solution, the trade barriers
raised by Algeria subject to the formal dispute settlement procedure launched in June 2020 (by way
of reference to the Association Council, on the basis of the EU-Algeria Association Agreement)
remain an outstanding issue.
The EU continued engaging with
Jordan
to pursue a constructive policy dialogue, including at the
May 2021 EU-Jordan Association Committee and the Sub-committee on Justice and Security, and
assistance programmes in a broad range of areas. In May 2021 in Brussels, the Presidents of the
European Council and the European Commission discussed with King Abdullah II ways to bolster the
EU-Jordan partnership as well as efforts to counter the COVID-19 pandemic. In July 2021, the second
instalment of the EU MFA III programme in Jordan was disbursed (EUR 250 million) to assist the
country in meeting urgent external financing needs caused by the pandemic.
In
Lebanon,
the EU reinforced its calls for the urgent formation of a credible and accountable
Government and the implementation of necessary reforms. On 30 July, the Council adopted 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. On 4 August, HRVP Josep Borrell with the President of the European
Council, Charles Michel, took part in the international Conference in support of the Lebanese people
to reconfirm the EU’s full solidarity and support. In September, the EU welcomed the formation of
the new Lebanese Government and reiterated the EU’s readiness to accompany Lebanon towards
the credible implementation of urgent and essential reforms.
The EU remained committed to the resolution of the
Israeli-Palestinian
conflict based on the two-
state solution and throughout the year reiterated its clear position that all settlements in the
occupied Palestinian territory are against international law and unilateral measures should be
avoided. The EU has welcomed the normalisation agreements between Israel and some Arab
countries, notably the UAE, Bahrain, and Morocco. EU commitment to the Middle East Peace Process
with the parties was demonstrated by continuing engagement with them. 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.
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The EU continued to provide assistance across
Syria
and in neighbouring refugee-hosting countries.
The EU supported the efforts to find a lasting solution to the conflict negotiated under the auspices
of the UN according to Security Council Resolution 2254, notably through the Constitutional
Committee in Geneva and supporting the work of the UN Special Envoy for Syria. The EU continued
to be a partner to the Global Coalition to defeat Da’esh and maintained substantial restrictive
measures on the Assad regime. The 5th Brussels Conference in March 2021 generated pledges worth
EUR 5.3 billion for 2021 and beyond for Syria and the neighbouring countries hosting the largest
Syrian refugee population.
In
Libya,
the EU continued to support efforts to stabilise the country. The creation of the
Government of National Unity in March provided opportunities for engagement reiterated during a
HRVP visit in September. The EU continued its active involvement in the UN-led Berlin Process and in
the Berlin and Paris conferences in June and November respectively. Operation EUNAVFOR MED
IRINI guaranteed the implementation of the UN arms embargo. The EU Integrated Border
Management Assistance Mission (EUBAM) Libya continued to build Libyan authorities’ capacities in
the areas of border management, law enforcement and criminal justice. The EU Liaison and Planning
Cell (EULPC) provided key security, intelligence and planning expertise to the EU and to the UN
Support Mission in Libya (UNSMIL). The EU backed the UN and Libyan efforts to organise elections
through the deployment of an Election Expert Mission.
4.4.2.2. Working together towards the SDGs
During 2021, the EU continued to adjust its assistance and programming to support national and
local authorities and populations, including the most vulnerable groups, to respond to the effects of
the ongoing pandemic situation in the Southern Neighbourhood. Based on needs expressed by
partner countries, this support focused specifically on health, economic and social sectors.
Contributing to SDG 3, the EU continued to develop programmes to promote well-being and good
health in a region hard-hit by the pandemic, providing either additional funding, redesigning existing
programmes or by providing technical assistance, either in human form (by funding or training health
experts) or in material form (providing additional medical equipment or supplies). In various Team
Europe actions, the EU pooled efforts with Member States to provide significant emergency support,
such as vaccines (via direct donations, or via the COVAX Facility), medical supplies and equipment to
support the fight against COVID-19.
Working on SDG 5 (Achieve gender equality and empower all women and girls), support to eliminate
gender-based violence against women and girls was pursued through specific assistance to women’s
civil society organisations (CSOs) and through the specialised technical expertise of the Council of
Europe (CoE). In the partner countries, the EU continued to work with national and local authorities
on women’s’ empowerment and gender equality by promoting the participation of women in
politics, women entrepreneurship and economic autonomy, and support to keep girls of
impoverished families in school, thus also contributing to SDG 4. In Syria, the EU funded a
programme to enhance women’s participation in peace-building processes, working towards SDG 16.
In terms of SDG 4 (Quality education), through the Erasmus+ programme the EU supports higher
education cooperation and mobility opportunities in the Western Balkans. During the period 2014-
2020 there were more than 56 000 short-term mobilities planned with the region, 654 Erasmus
Mundus scholarships to students, 206 capacity-building in higher education projects coordinated by
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higher education institutions in the region and 15 Jean Monnet projects with higher education
institutions in the region were selected.
In 2021 there were limited calls open for the regions outside the EU. 11 students from the region
were selected for the Erasmus Mundus Joint Master scholarships. In Jean Monnet Actions, 1 project
with applicants from the region (Algeria) was selected and 15 Capacity building in youth projects
were selected. Organisations from South-Mediterranean are involved in three Erasmus+ Virtual
Exchanges projects selected from call 2021.
Within the larger goal of taking urgent action in one of the regions most affected by the effects of
climate change (SDG 13), water scarce and exposed to extreme heat, the EU, its Member States and
International Financial Institutions have joined efforts to work together with the Southern
Neighbourhood countries to protect the ecosystem they share around the Mediterranean Sea. As
illustrations, a Team Europe initiative on water has been developed in Tunisia (SDG 6); in Morocco,
where a Green Partnership is under development, a programme promotes eco-agriculture and
sustainable management of forests, among other objectives (SDG 15); and in Egypt, the support to
institutional reform and capacity building in the irrigation sector, fundamental for food security of a
large population, continues (SDG 2). The EU is also financing an innovative project to transform
wastewater into energy in Jordan, thus also contributing to SDG 7.
Europe’s response to the pandemic in the Southern Neighbourhood also focused on post-pandemic
recovery plans. In Algeria, two new programmes - one on blue economy (SDG 14) and one on youth
entrepreneurship in the tourism sector - were developed. They both start field activities in the first
months of 2022 and will contribute to the shared EU-Algeria agenda on sustainable growth and jobs
(SDG 8).
In the wider pursuit of SDG 7 the EU is working with its southern partners to promote energy
efficiency and renewable energy sources (including clean hydrogen), to enhance interregional
interconnections through electricity infrastructure, as well as through supporting convergence of the
regulatory frameworks, institutional capacity building, exchange of expertise and awareness raising.
Fighting the major challenges of growing urbanisation (SDG 11) in the whole region, and particularly
in Egypt, which is home to one of the largest cities in the world and where the population is
concentrated in a small part of the territory, the EU continued to support circular economy models
(SDG 12) through activities on waste management, resource efficiency, pollution reduction in
industries, and ecotourism.
In a region also undergoing deep political changes with some countries in turmoil since 2011, the EU
and its Member States continued their efforts to promote inclusive societies, better governance,
public accountability and a justice system that works for all (SDG 16). Work continued in the reform
of the security sector in Tunisia focusing, for example, on the fight against money laundering, and
work in digitalisation of the justice system to allow for swifter, fairer delivery of justice, while
improved transparency in public finances, with EU support, allows for better supervision of the
delivery of public services. As the principal supporter of the Palestinian authority, the EU has been in
the lead in the area of public finance management and public administration reform for years.
All four components of the 2021 South regional migration programme are designed to support
sustainable protection, return and reintegration in North Africa and to increase the protection and
resilience of migrants, forcibly displaced persons and host communities, notably in Libya, with all
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contributing to SDG 10 (reducing inequalities), in particular to sub-goal ‘Responsible and well-
managed migration policies’. These actions will also significantly contribute to SDGs 16, 3 and 5.
C
ASE STUDIES
Bringing together innovators, with a focus on women entrepreneurs (SDG 5 & SDG 9)
Project: THE NEXT SOCIETY, implemented by Anima - Budget: EUR 7.7 million
THE NEXT SOCIETY is an open community of change makers engaged in innovation and economic
development. It brings together entrepreneurs, investors, corporates, NGOs, as well as public and
private innovation and research hubs from Europe and Southern Mediterranean countries. This large
network includes over 300 business and innovation, research and investment organisations, and 2
500 international SMEs and entrepreneurs from 30 countries.
Objectives
The purpose of this regional project is to improve the policy frameworks for innovation and start-ups,
foster start-up success, promote and internationalise industrial clusters, and accelerate technology
transfer into enterprises.
Impact
THE NEXT SOCIETY is at the origin of new regulatory frameworks that strongly accelerate innovation
in several South Mediterranean countries on issues such as reform of the intellectual property
regime in universities, crowdfunding, and adoption of tax measures that favour research in
companies. The project has achieved substantial results for innovation support organisations and
entrepreneurs with 78 technological partnerships and business contracts having been signed, 22 of
the supported start-ups have raised more than EUR 2 million, 142 jobs have already been created,
and 50 technologies have left South Mediterranean laboratories to be developed within the
framework of industrial partnerships. Focus is also on women entrepreneurs. Half of the companies
supported in Algeria, Egypt, Jordan, Lebanon, Morocco, Palestine and Tunisia have been founded or
co-founded by women. Although girls have more opportunities to access higher education than ever
before, UNESCO warns that globally only 35 % of science, technology, engineering, and mathematics
(STEM) students are women. Even Southern Neighbourhood women, with a higher rate of 57 % of
students in the field, struggle to make a living out of the laboratories. In this context, the EU co-
funded project THE NEXT SOCIETY is removing the barriers to innovation in the Southern
Neighbourhood region and is supporting women like Désirée el-Hajj in Lebanon and Yamina Bouchikh
in Algeria to bring their innovative ideas to the market
112
.
SDG 8 (Sustainable and inclusive economic growth) and SDG 12 (Sustainable consumption and
production patterns)
Project: MED-UP on Social Entrepreneurship, implemented by OXFAM Budget: EUR 4.9 million
Objectives
112
https://europa.eu/capacity4dev/articles/women-and-science-eu-southern-neighbourhood-region-lessons-
learnt-next-society-initiative
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The regional project promotes social entrepreneurship in the Mediterranean region by: providing
support to the national authorities on the regulatory framework, building the capacity of social
economy organisations, and providing direct support to innovative social entrepreneurs.
Impact
MED-UP has triggered multiple positive actions for the adoption of new regulations and the
development of strategies and policies on social economy.
In Lebanon, MED-UP contributed to the drafting of a law for social economy, which aims at creating
an enabling environment for social entrepreneurship.
In Tunisia, a law on social economy was adopted last year. MED-UP is supporting the smooth
implementation of the law and ensuring a regional peer review. A
Commission sectorielle de
l'Economie sociale et solidaire pour l'agriculture et la pêche
was established thanks to the
connections created during the peer review in Tunisia. The Palestinian Cooperative Work Agency
networked with its counterpart agency in Morocco and with the Tunisian Ministry of Agriculture on
the topic of regulating the social economy sector.
Moreover, the project achieved substantive results for support to organisations and social
enterprises.
Social Economy Support Organisations (SESOs) received targeted support through MED-UP, in
particular on the Better Entrepreneurship Policy Tool - an instrument developed to help key actors in
the field.
MED-UP has organised social innovation bootcamps and supported BuildPalestine, a not-for-profit
organisation that connects supporters around the world with social impact projects in Palestine.
In Lebanon, the initiative ‘Live, Love and Recycle’ received EUR 10 000 through MED-UP. This is a free
app that people can use when they have items to recycle, such as plastic, cans, metal and clothes.
So far, 64 social entrepreneurs have benefited from seed money (sub-granting) through the project.
4.4.2.3. Implementation
In February 2021, the European Commission and the High Representative adopted a new Agenda for
the Mediterranean
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. Through this new agenda, the EU will articulate its cooperation around five
policy areas: human development, good governance and the rule of law; strengthen resilience, build
prosperity and seize the digital transition; peace and security; migration and mobility; and Green
transition, climate change resilience, energy and environment.
This Agenda is accompanied by an economic and investment plan, composed of flagship initiatives
that aim at strengthening resilience, building prosperity and increasing trade and investment in our
partner countries with a view to support competitiveness and inclusive growth. Along with socio-
economic development (covering job creation, education, skills, women and youth empowerment,
and improvements in public administration reform, including the rule of law) the green transition
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constitutes an essential element of this framework. Addressing migration challenges together also
remains a top priority.
Some of the EIP’s flagships are starting to take shape. We are working with Member States to
develop Team Europe initiatives at country and regional level covering priority sectors such as
resource management (including water) and economic development (including a regional TEI on job
creation, trade and investment). Larger infrastructure projects are also concerned such as in Jordan
on waste and sanitation programmes and desalination.
The EU’s plans for interventions in the Region are developed hand in hand with the partner countries
and are framed by jointly agreed political documents fixing common strategic priorities, called
Partnership Priorities (PPs). In 2021, the preparation and negotiation of the PPs have progressed.
In the Southern Neighbourhood, the EU continued to adjust its assistance and programming to
support local authorities and populations amongst the most vulnerable groups to respond to the
effects of the ongoing pandemic situation during 2021. Based on needs expressed by partner
countries, this support focused specifically on health, economic and social sectors. In various Team
Europe actions, the EU pooled efforts with its Member States to provide emergency support, such as
vaccines (via direct donations, or via the COVAX Facility), medical supplies and equipment to support
the fight against COVID-19.
The EU Regional Trust Fund in Response to the Syrian crisis (EUTF Syria) and the EU Emergency Trust
Fund for Africa (EUTF Africa) – North Africa window continued to play a vital role providing urgent
support to assist refugees, migrants and vulnerable host communities in neighbouring countries.
Health
By continuing to deal with the effects of the COVID-19 pandemic and working towards the
implementation of SDG 3 (Ensure healthy lives and promote well-being for all at all ages), the 2021
actions of the EU in the Southern Neighbourhood had a strong focus on health. The regional EU
initiative on Health Security in the Southern Neighbourhood implemented by the European Centre
for Disease Prevention and Control proved timely during the pandemic. It aims to increase
preparedness, prevention and response in health crises and started to train a new cohort of
epidemiologists.
At country level, the EU helped authorities establish or improve social security systems, through
extending health coverage or the governance of social protection schemes. In Morocco, the new
programme Karama was adopted in 2021 (EUR 130 million). It aims to enhance social protection. In
Libya and Egypt, the EU provided substantial support to the health sector to address the sanitary and
socio-economic impacts of the pandemic. In Tunisia, the EU health support programme Essaha Aziza
was beefed up in 2021 to reach EUR 70 million. It provided high-level medical expertise (including an
epidemiologist) and delivered a significant amount of biomedical equipment and vehicles (such as
ambulances and refrigerated transport), enabling faster provision and high-quality care throughout
the country, including the more isolated areas. The EU and Algeria worked on the roll-out of the
COVID-19 response package (EUR 75 million), focusing on health emergencies, delivering several
hundred thousand tests and millions of pieces of personal protection equipment. At the height of the
third wave, in August 2021, the EU helped the emergency provision of 750 oxygen concentrators. The
EU also strengthened its assistance to the Lebanese health sector with an additional EUR 64 million
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of support to facilitate access to primary healthcare services and to procure essential medicines and
vaccines for routine and COVID-19 immunisation.
Gender equality
Working on SDG 5 (Achieve gender equality and empower all women and girls), support to eliminate
gender-based violence against women and girls was pursued through specific support to women’s
civil society organisations (CSOs) and through the specialised technical expertise of the Council of
Europe (CoE). The regional campaign to Combat Violence against Women in the Southern
Mediterranean Region, and the EU-CoE programme South IV have been instrumental in
documenting, advocating, and supporting victims of violence, as well as building capacities in the
region on the provisions of the CoE Istanbul Convention.
In Libya, the EU continued to promote the role of civil society, reinforcing the capacities of CSOs
through technical assistance and training, and supported human rights and gender equality.
Moussawat, the first bilateral programme dedicated to gender equality in Tunisia, was completed in
2021 and contributed to improve the understanding of gender-related issues in the country (family
planning, budgeting, and dialogue), women’s participation in public and social life, and their
economic autonomy, and elimination of violence against women. In Egypt in 2021, the EU completed
the evaluation of the programme Enhancing Access of Children to Education and Fighting Child
Labour, which provided incentives for poor families in remote areas to put, and keep, their children,
particularly girls, in school. In Lebanon, the EU maintained its commitment in the field of basic
education with a total amount of EUR 25 million for direct support to teachers and families. EU
assistance also targeted out-of-school children with specific interventions in non-formal education.
More than 110 000 children per year are supported by the EU to access education, representing
close to 25 % of all children in public primary schools. Within the EU-funded programme Enhancing
women's participation in decision-making and peace-building processes in Syria (EUR 2.5 million), the
EuroMed feminist initiative supported a consultation process with over 250 Syrian activists, gender
and legal experts from over 100 organisations and initiatives to demand structural change to ensure
women’s participation in decision-making and peace building processes in Syria.
Youth and culture
Youth in the Southern Neighbourhood often lacks the tools to voice their concerns and address
issues to shape public narrative and policies. The EU fosters active and inclusive youth citizenship by
amplifying youth voices in public policymaking as actors of change. Young Mediterranean Voices,
which ended in March 2021, was an intercultural dialogue programme funded by the EU that
contributed to empower young people to enhance a culture of dialogue, shape public affairs and
media, and create a shared understanding with peers. Youth empowerment is at the core of the EU’s
action in the region, and specific programmes aim to enhance the role of culture and creativity as a
vector for employment and resilience by unearthing the dormant potential of the cultural and
creative industry to create economic value and decent jobs, enhance growth, and foster social
inclusion.
Green deal
The Southern Neighbourhood is among the regions heavily concerned by the effects of climate
change (SDG 13). Involvement of southern neighbours is indispensable to achieve the objectives of
the Green Deal, in particular the zero-pollution and zero-emissions objectives. There is a large
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political consensus on common objectives between the EU and its partners, as demonstrated in the
adoption of UfM Ministerial Declarations on environment and climate action, and on energy in 2021.
Cooperation is implemented to streamline climate action in national policies on the one hand, and on
the other to support local authorities’, including cities, climate action to help manage the growing
urbanization and its related challenges, such as solid waste and residual waters management, and
sustainable transport alternatives. Pollution of the Mediterranean Sea is a subject of common
concern to partners on all shores and fresh water is increasingly scarce.
In Morocco, a new programme
Terre verte
has been designed in 2021 in support of the ecological
development of agriculture and forest resources in the country (EUR 100 million) and to promote
resilient, eco-efficient and innovative practices including in the use of water. Joint work on an
ambitious Team Europe initiative on water in Tunisia started in 2021, with several Member States
and European Financing Institutions, to ensure access to safe drinking water and sanitation; the
sustainable use of water resources and to combat climate change (SDG 6 Ensure availability and
sustainable management of water and sanitation for all). The UfM conference on environment and
climate action took place in October 2021 in Cairo, co-chaired by Commission Vice President
Timmermans. Meetings in the margin facilitated discussions on the UNFCC COP26 and preliminary
discussions on COP27 to be hosted by Egypt in 2022. In 2021, the EU continued support to the water
sector through the flagship technical assistance programme EU Water Stars, which supports
institutional reform and capacity building in the irrigation sector in Egypt. The EU played a crucial role
for the fourth year running in the organisation of the Cairo Water Week that in 2021 featured
Commissioner Oliver Várhelyi. In 2021, the EU approved a new programme to support Jordan’s green
transition and achieve its international climate change commitments. The initiative looks at the
energy-water-food nexus. The EU will finance projects to turn waste and wastewater (which when
purified can be used for irrigation) into energy. A particular focus will be on service provision for
vulnerable Jordanians and refugees. The EU and Member States came together to launch a Team
Europe initiative for sustainable water management, which will help Jordan, the second most water
scarce country in the world, to address its chronic water shortages. A flagship initiative will be the
realisation of the Aqaba Amman Desalination and Water Conveyor project, which will provide 300
million cubic meters of drinkable water to the country, thus answering Jordan’s needs for fresh water
while reducing exploitation of non-renewable water sources.
Sustainable growth and jobs
A regional programme on investment, jointly implemented with the OECD, aims to support
sustainable growth and decent job creation through an integrated approach to improve the
investment climate (SDG 8 Promote sustained, inclusive and sustainable economic growth, full and
productive employment and decent work for all). It supports the implementation of investment
reforms to attract higher quality investments. Furthermore, the EU supports the development of
trade capacities, including at intra and interregional levels, in one of the least integrated regions of
the world. Work continued with financial institutions, notably the EIB and EBRD, under the
Neighbourhood Investment Platform to finance the development of sustainable value chains and
industrial clusters in Egypt, Jordan, Morocco and Tunisia, focusing on the inclusion of SMEs into value
chains. Integrating employment considerations in trade and investment policies is the objective of
the Mainstreaming Employment into Trade and Investment programme implemented by the ILO.
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At national level, a foreign direct investment (FDI) quality assessment took place in Jordan to provide
tailored policy advice and capacity building on how to strengthen the impact of FDI on sustainable
development. In 2021, the EU adopted a new EUR 12 million programme to support Libya’s economic
recovery. The programme will focus on fostering the emergence of an ecosystem to support start-
ups, to improve Small and Medium Enterprises’ (SMEs) capacities with the aim to create sustainable
and decent jobs, and to improve policies and institutional capacities. Through support to Green
Growth and Competitiveness of Morocco (EUR 105 million) the EU contributed to the
competitiveness of the economy, in particular through actions aimed at strengthening the
institutional and regulatory framework, streamlining procedures and facilitating trade, encouraging
the emergence of the theme of green growth and energy efficiency and its consideration by the
administration. It also enabled the establishment of a support system for start-ups, young project
leaders and investors and the launching of a loan guarantee product for microfinance for the benefit
of very small enterprises. In 2021, thanks to EU financial support, the EIB has made available USD 425
million in debt and risk sharing instruments to support Palestinian SMEs and micro-entrepreneurs.
The initiative represents a coordinated effort between the EU and the EIB and forms part of the
overall Team Europe initiative to support sustainable social and economic recovery from the COVID-
19 crisis in partner countries. PASSEM, a support programme for specific market surveillance (about
EUR 4 million) was designed to enhance the capacity of Algerian stakeholders involved in industrial
products certification in view of improving consumer protection and facilitating trade. In Syria, in the
area of resilience, food Security and livelihoods, 1 750 farmers were provided with seeds, sheep and
agricultural inputs and 300 small business received training on managing small business grants. Over
200 000 kg of local wheat was ground and produced as flour by a mill rehabilitated under an EU
project. This produced more than 250 000 packs of bread.
Digitalisation, Science, Technology and Innovation
Working towards SDG 9 (Build resilient infrastructure, promote inclusive and sustainable
industrialisation and foster innovation), the regional THE NEXT SOCIETY programme pursued its
activities in 2021 through public/private dialogue to remove barriers to innovation and by supporting
industrial clusters, start-ups and innovation actors to bring their innovative ideas to the market. A
focus is also on women entrepreneurs (SDG 5). Half of the companies supported by the programme
in Algeria, Egypt, Jordan, Lebanon, Morocco, Palestine and Tunisia have been founded or co-founded
by women.
In Tunisia, the INNOV’I project continued to strengthen the ecosystem of innovative
entrepreneurship/start-ups through support for the employment of young IT graduates in
disadvantaged regions, funding the participation of start-ups in tech accelerators and conventions,
and contributing to the creation of the major incubator The Dot — a private and publicly funded
project that has become a multi-service digital centre in Tunis. In Egypt, the Team Europe initiative
on connected economy and society has a strong digital pillar in close cooperation with EU Member
States (France and Germany) and European Financing Institutions.
Migration
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 6.7 million Syrians are internally displaced and a further 5.6 million are
refugees, primarily in neighbouring countries. In 2021, the EU adopted a substantial assistance
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package in response to the Syrian crisis to support the Syrian population inside Syria (EUR 41 million),
and through the EU Trust Fund in response to the Syria crisis and as special measures under the
NDICI-Global Europe, to support refugees from Syria and vulnerable host communities in Jordan
(overall EUR 76 million) and Lebanon (overall EUR 188 million). Together with its Member States, the
EU remains the largest donor in response to the crisis, having mobilised, so far, more than EUR 25
billion since 2011 and EUR 1.8 billion to assistance inside Syria, to support displaced people to ensure
peace and stability.
In December 2021, the mandate of the EU Regional Trust Fund ended having reached an overall
financial volume of EUR 2.38 billion. Co-chaired by the EU and the UN, the Fifth Brussels Conference
on ‘Supporting the future of Syria and the region’ brought together over 80 countries together with
international organisations, reaffirming the EU’s engagement. It succeeded in mobilising aid through
pledges totalling EUR 5.3 billion for 2021 and beyond for Syria and the neighbouring countries
hosting Syrian refugee populations. Egypt has benefited from the EU Trust Fund for Africa with a
total of EUR 91 million in bilateral and regional actions, including a EUR 60 million package to
enhance the response to migration challenges. The bilateral migration programme aims to boost job
opportunities in areas prone to migration, creating employment and building skills of young people
as well as supporting labour-intensive infrastructure development in cities hosting migrants, and
other actions (SMEs, skills, healthcare) for areas with a high concentration of migrants.
Governance, Peace and Security
Governance is a key factor in the wellbeing of citizens. Efficient public administrations serve the
needs of citizens and businesses. The EU helps partner countries in undertaking reforms in the area
of public administration and governance by providing technical support. Areas of intervention
include the central and local administrations, digital government, public procurement, Better
Regulation, the judicial system, and the fight against corruption and fraud. Euromed Justice,
implemented by Eurojust, contributes to protect the EU neighbouring countries' citizens against
criminal activities respecting the rule of law and fundamental human rights. The programme aims at
strengthening judicial authorities’ cooperation in criminal matters amongst South Partner Countries’
national authorities, EU Member States’ judicial authorities and other relevant judicial and law
enforcement entities, therefore inching closer to SDG 17 (Promote peaceful and inclusive societies
for sustainable development, provide access to justice for all and build effective, accountable and
inclusive institutions at all levels).
In Tunisia, in 2021, the ongoing security sector reform programme provided training and equipment
that contributed to increasing the capacity of internal security forces (e.g., in the area of inspection,
anti-money laundering and human resources management). The construction of critical
infrastructure related to border management and police training continued. In Morocco, the EU
cooperation has contributed to the reform of the public finances of the Government with the
achievement of objectives related to transparency and fair execution of public finances, as well as
closer supervision on the performance of public entities and the delivery of public services. In Libya,
the EU supports the reinforcement of public administration and public service delivery capacities at
central and local levels. In 2021, the EU adopted a new EUR 8 million programme to support good
governance and the rule of law, providing Institutional support to the House of Representatives. It
will also seek to promote the participation of women in decision-making as well as access to high
quality and efficient justice. The highly volatile political situation continued to affect greatly the
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implementation of EU assistance to the Syrian population. It required high programmatic agility to
uphold political parameters and enable robust risk monitoring of projects and mitigation measures.
In 2021, programmes were deployed to strengthen the resilience and protect the rights of the Syrian
population and its civil society organisations, and promote dialogue and social cohesion. In 2021, the
EU continued to support Palestinian civil society organisations via multiple instruments aiming to
promote and protect human rights and democratic governance, raising electoral awareness, and
supporting the resilience of the Palestinian population in East Jerusalem. The EU has also been in the
lead in the area of public finance management and administration reform.
4.4.2.4. Humanitarian aid and civil protection – responding to the emergency needs of people
affected by conflicts and disasters
Libya
After the fall of the Ghaddafi regime in 2011, several rounds of intense conflict between rival groups
affected Libya’s social fabric, basic services and national infrastructure. Despite the fragility of the
political situation, the cease-fire has held for one year and has allowed for some improvements in
access to basic services. According to the 2021 Humanitarian Needs Overview, the number of
internally displaced persons, refugees and migrants in need has reduced by 36 % (reaching 803 000
individuals in 2021). Migrants remain extremely vulnerable to abuse and exploitation, and often face
discrimination to access public services such as healthcare, education and assistance programmes.
In 2021, the Commission provided EUR 9 million in humanitarian assistance to address health,
protection, education and other basic needs of the most vulnerable people, and support
humanitarian advocacy, coordination, and the UN Humanitarian Air Services. EUR 3 million was
allocated to support access to COVID-19 vaccines for the most marginalised and vulnerable groups. In
partnership with the International Committee of the Red Cross, the Commission ensured access to
water for 500 000 people during electricity cuts in Benghazi through the provision of a backup
generator for the Suluk pumping station.
Egypt
Egypt remains a country of destination and transit for refugees, asylum seekers and migrants from
the Middle East and East Africa. Over 270 000 registered refugees are stranded in the poorest
neighbourhoods of cities such as Cairo and Alexandria. According to the UNHCR, 84 % of refugees live
below the national poverty line, compared to 32.5 % of Egyptians. Syrians account for over 50 % of
the refugees, with the remainder mainly from East Africa, Iraq, and Yemen.
The Commission allocated EUR 5 million in humanitarian funding in 2021 to provide basic needs
assistance, education in emergencies and protection. Over 1 700 unaccompanied and separated
children were supported to enter, re-enter or stay enrolled in formal education. Over 27 000
refugees and asylum seekers received multi-purpose cash assistance. An additional EUR 1 million was
allocated to support the roll out of the COVID-19 vaccination campaign that reached 40 000 refugees.
In 2021, the Commission also undertook a review of their programming priorities to better integrate
refugees and asylum seekers into the national education programme, while mainstreaming
protection and increasing coordination between humanitarian assistance, development and
peacebuilding.
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Sahrawi Crisis
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 2021, the Commission deployed projects amounting to EUR 10 million to respond to the high
vulnerability of Sahrawi refugees in camps. Assistance included food aid to tackle malnutrition among
children and women, support to improve the quality of primary education, the supply of essential
medicines covering 80 % of the health needs of the population, and provision of safe drinking water.
With Commission funding in 2021, more than 50 % of the population received safe drinking water, in
comparison to less than 30 % in 2019. The Commission also supported the roll-out of the COVID-19
vaccination campaigns in camps.
4.4.2.5. Crisis response and preparedness
The EU continued to respond to ongoing crises in its southern neighbourhood.
In
Libya,
support for the implementation of the Berlin Declaration continues whilst additional crisis
response measures were launched to respond to the October 2020 ceasefire agreement and the
March 2021 appointment of the interim Government of National Unity. This included support to
mediation, mine action, security sector reform and to the planned elections.
In
Syria,
the EU renewed its support for United Nations-led efforts for a political solution to the
conflict. It also maintained its efforts to increase human security and stabilisation in the areas in
northeast
Syria
liberated by the International Coalition from Da’esh including support in the health
and water sectors, mine action, and efforts to reintegrate persons released from camps in the area.
In
Lebanon,
efforts to support inclusive, local level dialogue during the period of political tension was
supported, while in
Palestine
efforts were continued to support the immediate needs of civilians
following the May 2021 conflict in and around
Gaza.
Under the IcSP, specific facilities established to support partner country 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,
supporting the
organisation of live exercises to test and improve operational response and inter-agency
coordination.
Under the auspices of the EU Centres of Excellence Initiative for Chemical, Biological, Radiological
and Nuclear risk mitigation, a highly successful live exercise was organised in
Beirut,
bringing
together six government entities as part of a coordinated response to a CBRN-related terrorist
incident – a very difficult task given the national context.
Through financing via the CFSP budget, the European Union 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
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task of being ready to provide support to the UN-led efforts for peace within the Berlin Process,
within the scope of EUBAM’s core areas of engagement.
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4.5.
Enlargement (Western Balkans and Turkey)
4.5.1. Introduction (policy developments)
2021 was the first year of the Instrument for Pre-Accession III (IPA III) implementation under the
multiannual financial framework (MFF) 2021-2027.
Following the adoption of the IPA III Regulation in September 2021
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, the legal basis to implement
IPA III, the Commission implemented 89 % of the available 2021 IPA III commitment appropriations
by 31 December.
Financial Assistance under IPA III is based on the IPA III Programming Framework
115
, which is an
overarching European Commission strategic document for the use of IPA III funds for the duration of
the 2021-2027 MFF, reflecting the specific objectives of the IPA III Regulation and is focused on the
priorities of the enlargement process. It is articulated in five thematic windows which broadly
correspond to the specific objectives of the Regulation:
Window 1: Rule of law, fundamental rights and democracy;
Window 2: Good governance, EU acquis alignment, good neighbourly relations and strategic
communication;
Window 3: Green agenda and sustainable connectivity;
Window 4: Competitiveness and inclusive growth; and
Window 5: Territorial and cross border cooperation.
Actions are deployed, to the benefit of the IPA III beneficiaries through annual or multiannual action
plans at national or regional level or through horizontal initiatives targeting specific types of partners
(e.g., civil society) or cross-cutting issues. A significant amount of funds will be mobilised through
financial instruments such as blending grants and loans and the provision of budgetary guarantees
via the Western Balkans Investment Framework, a common financing platform where international
financing institutions and Member States’ agencies combine funds with IPA III to increase leverage
and impact of EU support.
The programming of IPA III funds follows a two-stage approach, whereby in the first stage, IPA III
beneficiaries prepare strategic responses outlining how their overall policies and sectoral strategies
are in line with the recommendations and requirements of the specific policy instruments of the
enlargement process. Such actions are screened on the basis of their policy relevance (first stage)
and those that are approved are developed into fully fledged programmes which are assessed based
on technical maturity (second stage). In this way the selected programmes fully comply with the key
policy priorities of the enlargement process and are ready for implementation as soon as the
financing decision is taken.
As regards the IPA COVID-19 financial assistance package to the Western Balkans, 89 % had been
contracted and 61 % paid by the end of the year. Moreover, the MFA operations granted to Albania,
Montenegro, Kosovo and North Macedonia have been successfully concluded with disbursements of
the final instalments in 2021. In the case of Bosnia and Herzegovina, only the first instalment could
be disbursed before the end of the availability period due to limited reform implementation.
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Regulation (EU) 2021/1529
of the European Parliament and of the Council of 15 September 2021
establishing the Instrument for Pre-Accession assistance (IPA III).
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C(2021) 8914 final of 10 December 2021.
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Support for building strong intra-regional economic ties by implementing the Common Regional
Market (CRM) action plan, as agreed by the leaders of the Western Balkan 6 (WB6) at the Sofia
Summit of the Berlin Process in 2020, continued in 2021. While technical-level work on the
elimination of trade barriers and harmonisation of commercial policies progressed significantly, their
implementation was halted by a more polarised political environment in the region. Decision-making
processes in the two regional partners playing a crucial role in CRM implementation – the Central
European Free Trade Agreement (CEFTA) Secretariat and the Regional Cooperation Council (RCC) –
were also negatively affected by the political situation and in particular issues between Belgrade and
Pristina.
A few major achievements were nevertheless reached in 2021:
Additional Protocol 6 on Trade in Services to the CEFTA 2006 Agreement entered into force;
As of 1 July 2021, full elimination of all roaming costs within the Western Balkan region in
implementation of the Regional Roaming Agreement for the Western Balkans;
The SEED+ project facilitating data transfers among customs authorities was extended to the
region;
Green Lanes were introduced among the WB6 to speed up the transport of priority goods;
and
EUR 100 million of investment was generated providing 3 000 jobs (out of which 2 000 were
for women).
With regards to Turkey the financial cooperation under the Instrument for Pre-accession Assistance
continued in line with the EU’s political priorities. 2021 was the first year when the new
programming approach under IPA III was implemented with greater focus on a sectoral approach,
relevance and maturity. In 2021, the Commission adopted a package of pre-accession assistance for
Turkey with a budget of EUR 208.5 million including support for people to people exchange, climate
adaptation, rural development and the Civil Society Facility. The Commission started preparations for
the establishment of the Turkey Investment Platform (TIP), allowing Turkey to participate in the
European Fund for Sustainable Development +, the first time that Turkey will benefit from such a
wide budgetary guarantee mechanism.
The EUR 6 billion Facility for Refugees in Turkey – a key component of the 2016 EU-Turkey Statement
- continued to provide support to refugees and host communities in the country. The Facility
provides some 1.8 million refugees with basic needs support, 695 000 refugee children with
educational support and millions benefit from healthcare and protection services. The full
operational budget of the Facility was contracted at the end of 2020 and EUR 4.5 billion has been
disbursed to date. Turkey and the EU further built on this fruitful cooperation and an additional EUR
3.6 billion in EU refugee support was mobilised for 2020-23. Within this framework, EUR 560 million
were allocated under the Facility´s humanitarian leg in 2021 to ensure the continuation of education
support to refugees in Turkey and to support migration and border management. Under the Facility´s
humanitarian leg, EUR 300 million of humanitarian assistance were also mobilised.
The European Commission’s institution-building instruments supported the IPA countries in their
bilateral reform processes. In 2021, TAIEX organised 94 events mobilising over 4 000 participants.
There were also 36 Twinning projects ongoing (EUR 50 million) covering a wide range of areas such
as justice and home affairs, finance, internal market and economic policy.
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EU engagement with civil society organisations remains strong. Non-governmental actors in
enlargement partner countries in the Western Balkans and Turkey are able to draw on the newly
adopted Civil Society Facility and Media programme under IPA III with a total funding of EUR 218
million for the 2021-2023 period.
4.5.2. Working together towards the SDGs
The IPA has a strong focus on SDG 16 (Peace, Justice and Strong Institutions) since rule of law
remains the cornerstone of the accession process and will determine enlargement partners’ overall
pace of progress on their path towards the EU. IPA III programmes in the area of rule of law focus on
strengthening the legislative and institutional framework and capacities of the IPA III beneficiaries,
including criminal justice actors, as well as providing support to actors, including civil society and
media, that contribute to an enabling environment for rule-of-law based societies.
The economic and investment plan (EIP) for the Western Balkans and the Green Agenda, cover the
alignment of the Western Balkans with the goals of the European Green Deal, aim at spurring the
long-term recovery of the region, supporting a green and digital transition, boosting economic
growth and supporting reforms to move forward on the EU path.
Therefore, the EIP and the Green Agenda, through a significant package of public investments,
technical assistance and budgetary guarantees, support several SDGs, especially affordable and clean
energy (SDG 7), environment and climate action (SDG 13), and innovation and industry (SDG 9).
However, the EIP aims also at boosting private sector development and employment through its
flagship initiatives on private sector competitiveness and on establishing youth guarantees in the
region, hence contributing also to SDG 8 (Decent work and economic growth).
With regard to SDG 4 (Quality education), Through the Erasmus+ programme, the EU supports higher
education cooperation and mobility opportunities in the Western Balkans
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. During the period 2014-
2020 there were 50 000 short-term mobilities (students and staff) planned and funded by the
Instrument for Pre-Accession II, 405 Erasmus Mundus scholarships funded to Western Balkans
students, 112 capacity-building in higher education projects coordinated by higher education
institutions in the region and 51 Jean Monnet projects selected with higher education institutions in
the region.
In 2021 there were limited calls open for the regions outside the EU. Two of the selected Erasmus
Mundus Joint Masters from call 2021 had partners from the Western Balkans and 19 students from
the region were selected for the Erasmus Mundus Joint Master scholarships. In Jean Monnet Actions,
in total 12 projects with applicants from the Western Balkans were selected. 21 capacity building in
youth projects with organisations located in the Western Balkans were selected. Organisations from
the Western Balkans were involved in four Erasmus+ Virtual Exchanges projects selected from call
2021.
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Serbia and North Macedonia are associated to Erasmus+ and participate on equal footing with EU Member
States.
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4.5.3. Implementation
Human development
The Commission supports the Western Balkans to foster the implementation of the European Pillar
of Social Rights, and the development of human capital also through the provision of funding, in
particular as regards the reform priorities identified in the Economic Reform programme in the areas
of education and skills, employment, and social protection and inclusion. Emphasis is also given to
youth, health, culture and sport.
In 2021, actions in different areas contributing to Human development were adopted as part of the
annual action plan for each of the IPA III beneficiaries. At regional level, the two new actions
Socieux+ and EU4Youth will support the Western Balkans in developing employment and social
protection strategies, systems and policies that are more inclusive, effective, responsive, resilient and
sustainable. They will also contribute to the improvement of education systems by benchmarking
educational provision in mathematics, science, computer and information literacy, and by giving a
voice to teachers and school leaders in the education policy debate.
In Bosnia and Herzegovina, the action EU4 Mitigating Socio-Economic Consequences of COVID-19
pandemic will strengthen the established systems of social service delivery (institutional and non-
institutional) for vulnerable groups affected by the pandemic and will contribute to economic
growth, job security and a system of better social protection and inclusion.
In Serbia, the action EU for enabling a more responsive healthcare system will contribute to
enhancing the resilience and further reform of the healthcare system, enhancing resilience, social
inclusion and emergency responses. This will be achieved through investing in structures for
detecting and responding to epidemiological hazards and capacity development of the healthcare
institutions.
As regards ongoing assistance, the focus on young people continued including through the signing of
a new EUR 4 million programme in support of the school exchanges programme of the Regional
Youth Cooperation Office. The second regional thematic Youth Lab was held in the Western Balkans
region discussing matters relating to mental health. A new project was signed with the Roma
Entrepreneurship Development Initiative focussing on enhancing access to finance for Roma
entrepreneurs or businesses employing Roma. The Regional Housing programme continued to
provide homes to refugees and persons displaced by conflicts in the region in the 1990s (8 826
homes provided by the end of 2021).
In Kosovo, two projects provided positive impact on gender issues through direct and indirect
enhancement of women farmers/agribusinesses. In Albania, the EU4Schools programme addresses
reconstruction of education facilities severely damaged by the earthquake. So far, 19 schools have
been completed and around 6 000 children are studying in new and modern facilities.
EU support to both individuals and civil society organisations in Turkey remains critical in a context
where space for civil society continues to shrink. The EU continued to reinforce the capacity of rights-
based civil society organisations as key players in a functioning democracy, including through core
funding and reaching out to smaller size organisations. The flagship Sivil Düşün project provided 319
such organisations with more than EUR 1 million of in-kind support, hosted two nationwide digital
fora, organised 17 Info Days and carried out three nationwide campaigns.
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Green Deal
The European Commission supported climate change mitigation and adaptation through policy
development and implementation, EU acquis alignment, technical assistance and investments for the
clean energy transition and low carbon technologies. In addition to dedicated actions, environment
and climate change considerations were mainstreamed in different areas of cooperation
In October 2021, the Regional Cooperation Council with the support of the European Commission
finalised the 2021-2030 action plan for the implementation of the Green Agenda for the Western
Balkans, in consultation with the region.
In 2021, new actions with a climate adaptation and/or mitigation as principal objective were adopted
as part of the annual action plan for each of the IPA III beneficiaries.
In Serbia, the EU for Connectivity and Green Agenda action will support the construction of a regional
sanitary landfill, increase the financial potential of the National Energy Efficiency Fund and increase
sustainable transport by modernising 120 kms of railway. IPA III funds in Albania and Montenegro
will help to effectively manage protected areas according to the EU acquis and best practices.
In North Macedonia, financial support will be geared towards improving the ecological and chemical
status of water in the transboundary Prespa Lake. Improvement of air quality is also foreseen in large
cities through addressing the air pollution caused by heating and transport systems. In Kosovo,
support is foreseen for environmental hazards emerging from air, water and waste pollution, and to
promote sustainable waste management.
In addition, key capacity building is channelled to Western Balkan partners via the Austrian
Environmental Agency. The Global Covenant of Mayors, now extended also to the Western Balkans
and Turkey, started implementation. Finally, a flagship project achieved recently, the construction of
the biomass heating plant in Kosovo, has supported Gjakova city in its transition from an oil-based
district heating system to a biomass-based system, which provides heating to around 40 % of the
citizens. The plant includes a cogeneration unit to produce electricity.
In Turkey, the Environment and Climate Change, Sustainable Green Energy and Transport action aims
at boosting capacities to draft a legislative and strategic framework as well as and carry out
monitoring and measurement for efficient heating/cooling; improve the energy performance of the
existing building stock in order to decrease public expenditures on energy consumption; and target
maritime decarbonisation and green shipping.
TAIEX also contributed to the European Green Deal through a dedicated flagship event series with all
NEAR partners including those in the Western Balkans. The event series informed the partner
administrations about EU policies and outlined what the Commission is doing to make Europe the
first climate neutral continent by 2050. Other topics included the redesigning of economic and
environmental policies in line with sustainable production and consumption principles as well as food
safety, reduction of food losses and re-use of water for agricultural purposes. Since the
implementation of the first Flagship, TAIEX implemented 80 follow-up activities in 2021 with over
500 EU experts and over 3 500 public officials from partner administrations.
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Sustainable growth and jobs
The economic and investment plan (EIP) and the Green Agenda for the Western Balkans also include
important measures to support job creation with the important contributions of the European Fund
for Sustainable Development plus (EFSD+).
In Albania, a new programme will support the transformation to a more innovation-driven and
knowledge-based economy through access to finance for start-ups. In Bosnia and Herzegovina a new
IPA III action aims at mitigating the negative socio-economic consequences of the COVID-19
pandemic by contributing to economic growth, job security, social protection and inclusion, with a
focus on micro, small and medium enterprises and start-ups. In Kosovo, the area of intervention is on
agri-food operators; likewise in Serbia the new action will support private sector development, trade,
and research and innovation in agriculture and rural development. North Macedonia’s ‘Greening
Business’ Facility will channel funds to the private sector in support of the greening of the economy
and enhancing the circular economy.
These new programmes will add to on-going activities already supporting micro and small enterprises
during the COVID-19 pandemic (4 400 MSMEs and 7 000 beneficiaries supported in North
Macedonia). Similarly in Kosovo a blending facility co-funded by the EU and EBRD offers a credit line
to enterprises that have the potential for export, import substitution and job creation (so far, more
than 80 investment projects have been supported). In Serbia, already 1 360 companies received
loans from a guarantee facility supporting Micro and SMEs, start-ups and innovative companies.
Digitalisation, Science, Technology and Innovation
The EIP provides direct support for innovation and green growth and contributes to address the
policy objectives of the Green Agenda and the Innovation, Research, Education, Culture, Youth and
Sport Agenda (‘Innovation Agenda’) for the Western Balkans. Investing in the competitiveness of the
private sector entails ensuring the availability and reliability of affordable and diversified access to
finance for start-ups and MSMEs that will support them to grow and expand. It also entails
addressing barriers hindering an adequate business climate development at economies and regional
level.
During 2021, the support to the development of the private sector through blending instruments was
integrated under the Western Balkans Investment Framework, where ‘digital transition’ represents a
key area of investment, especially to strengthen the digitalisation of the business sector in the
region. Support to the integration of research and development results in the business sector,
innovation and technology transfer are also provided as well as enabling digital eco-systems
(including incubators, accelerators through fin-techs, venture capital, and other innovative
instruments), digital innovation hubs and other forms of business and innovation clusters. Synergies
with the activities of the European Institute of Innovation and Technology Knowledge Innovation
Communities is promoted together with links to sectoral and/or local smart specialisation strategies.
In Albania a new action for Innovation will accelerate the transformation to a more innovation-driven
and knowledge-based economy embracing the opportunities from the green and digital transition,
unlocking its human capital and entrepreneurial potential, and thereby increasing its
competitiveness.
The EU continued its support for research and the private sector in Turkey, increasing
competitiveness and productivity and fostering innovation, covering almost all productive sectors. EU
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support reached a total of EUR 221 million, delivered through 42 projects. There is now an increasing
interest in the European Green Deal from Turkish business and research communities.
Migration
The Commission continued supporting the Western Balkans in their capacity to effectively and
humanely manage mixed migratory flows in line with international and EU standards. The support
focused on equipping the region to take part in EU level work, as well as on providing direct support
to the reception conditions of migrants arriving in the region from the EU. EU Justice and Home
Affairs agencies, the EU Border and Coast guard Agency (EUBCGA/Frontex) and the EU Agency for
Asylum (EUAA) were at the forefront of efforts to bring the region ever closer to the EU.
In 2021, new programmes on migration management and border security were adopted to support
Western Balkans beneficiaries with: identification, registration and referral at borders; migration
statistics; asylum and reception systems; management of returns; alternatives to detention; and EU-
aligned contingency planning and crisis response capacities. An additional programme will
operationalise the implementation of Frontex Status Agreements with the region and support
alignment of Integrated Border Management strategies with EU standards. Bosnia and Herzegovina
will receive specific support on border and migration capabilities including in the area of combatting
and preventing migrant smuggling and human trafficking.
With EU support, the region has worked closely with the EU Agency for Asylum (EUAA) to identify
areas and strategies for ensuring efficient and rights-based asylum and reception systems. This is key
for migration management to become effective and humane. Since 2019, four Roadmaps to support
the further development of asylum and reception systems in line with EU standards have been
concluded and endorsed with Albania, Bosnia and Herzegovina, North Macedonia and Serbia. At the
requests of the authorities of Montenegro and Kosovo two further Roadmaps have been prepared.
The Roadmap with Montenegro was endorsed on the margins of the Brdo Ministerial in early
December 2021.
Governance, Peace and Security
A core objective of the European Union’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 access to justice, the fight against corruption and serious and organised crime, the
respect for fundamental rights and freedoms, and good administration are at the heart of this
agenda and the work of the Commission in support of the region.
In 2021, several new programmes were adopted in support of stronger rule of law-based societies. In
Albania, a new programme will support investments and capacity building in the implementation of
the ambitious justice reform. Justice reform and the capacity of the anti-corruption police are the
focus of a new programme in North Macedonia. At regional level, the conditions for justice reforms
in all Western Balkans partners and Turkey will be enhanced by the supporting evidence-based
policymaking on justice system performance, focussing on gathering data and providing analysis on
justice reform progress.
In terms of the fight against serious and organised crime, the EU will tackle cross-border crime in
North Macedonia, including by supporting the implementation of integrated border management.
The EU Support to Regional Security in the Western Balkans programme will support cooperation
within the region and with the EU to respond to organised crime and terrorism, and the
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establishment of integrated border management structures. The safety of local populations is further
enhanced through a number of demining activities implemented in Bosnia and Herzegovina and in
Kosovo.
The fundamental rights of Roma in the enlargement region will further be strengthened through the
EU support to fundamental rights of Roma in the Western Balkans and Turkey programme. In Bosnia
and Herzegovina, the EU4Electoral Process programme will contribute to improve the integrity,
transparency, and efficiency of the electoral process.
Better governance continues to be supported through new regional programmes to support
economic governance and public administration reform in line with the Principles of Public
Administration and the European integration process. The EU for Better Municipal Governance
programme in Kosovo will provide funding to municipalities to further improve their performance in
democratic governance, municipal management and municipal service delivery.
Reflecting the key role played by civil society and media in democratic and pluralistic societies based
on the rule of law, programmes in this area were also adopted in 2021.
In terms of implementation, a highlight of 2021 was the stronger engagement for equality and
tolerance supported by the EU at a regional level in response to the rise in hate speech and the
glorification of war crimes in the Western Balkans. With EU support, the Council of Europe launched
the regional campaign ‘Block the hatred - Share the love’ that reached 413 105 Facebook users. The
International Residual Mechanism for Criminal Tribunals (IRMCT) focused on sharing facts
established in the cases adjudicated by the International Criminal Tribunal for the former Yugoslavia,
thereby fighting disinformation. The programme reached over 1 500 000 people through its social
media campaigns.
Flagship projects such as the EU-Turkey Business Dialogue and EU-Turkey Town Twinning have
helped the business community and local government to establish and strengthen their ties with
their EU peers to address common challenges, including climate change.
Finally, the annual TAIEX International Forum for Prosecutors enabled closer cooperation of over 150
public prosecutors from the EU Member States and NEAR partners including those in the Western
Balkans, to tackle emerging topics such as the use of cryptocurrencies for criminal purposes and
cross-border wildlife crime.
Cross-border cooperation
The new nine IPA III cross-border cooperation (CBC) programmes 2021-2027 among the IPA
beneficiaries are scheduled to be adopted in early 2022, as well as the 15 Interreg IPA CBC
programmes with IPA allocations.
Implementation of CBC programmes under IPA II, with the overall aim to support reconciliation and
good neighbourly relations, has continued in several thematic priorities including tourism, cultural
and natural heritage; environment protection, climate change adaptation and mitigation,
employment, labour mobility, social and cultural inclusion, competitiveness, business, trade and
investment.
Projects have contributed to the development of some economically important sectors, such as
tourism, creating a sustainable tourist offer in the region based on cultural heritage and local cuisine.
Examples of these projects are the rehabilitation of Medieval Fortresses and Austro-Hungarian
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Fortresses in Bosnia and Herzegovina and Montenegro, the Cultural Route ‘On the Trail of Mother
Teresa’ and local cuisine as tourism offers. Other projects that have also had a positive impact on
tourism have supported the preservation of wildlife and the promotion of natural values, while
increasing the safety of tourists in the mountains and promoting tourism services to international
and domestic visitors.
Other projects in the CBC programmes have contributed to improve resource efficiency in the water
and waste management sectors, to the creation of a stimulating and innovative environment in
youth educational institutions to bring the concept of social entrepreneurship closer to young people
and enable greater involvement through employment and social start-ups.
Regarding the Interreg IPA programmes, it is also worth noting that the support also included actions
in the fields of border crossing management and mobility and migration management, including the
protection and economic and social integration of third-country nationals.
In peripheral cross-border areas, these programmes are deeply incorporated in the lives of local
communities, reinforcing relations between the local population and the EU and re-establishing and
strengthening the ties between the neighbours.
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A ‘Team Europe’ approach to the implementation of the economic and investment plan in the
Western Balkans.
After the presentation of the economic and investment plan (EIP) for the Western Balkans in October
2020, the Western Balkans Investment Framework (WBIF) launched in early 2021 the 6th investment
grant call for proposals with the objective of supporting the implementation of EIP flagship
investments. In response to the call, Western Balkans partners submitted an impressive number of
project applications amounting to nearly EUR 4 billion of investments. After the screening of the
submitted applications, a list of 21 investment projects with total costs exceeding EUR 3 billion and
requesting EUR 1.1 billion of IPA III assistance was presented to the WBIF Operational Board on 17
December 2021.
Over 120 participants attended, including representatives from EU Member States, the European
Parliament, representatives of the Western Balkan partners, Norway, Financial Institutions, and the
Energy and Transport Community Secretariats. The WBIF bilateral donors, underlining the ‘Team
Europe’ approach of WBIF, announced new pledges for over EUR 11 million to the European Western
Balkans Joint Fund (EWBJF) to contribute to the EUR 3.2 billion allocated by the European
Commission to WBIF 2021-2027 in December 2021.
A formal Written Procedure that concluded on 22 February 2022 followed the meeting.
4.5.4. Humanitarian aid and civil protection – responding to the emergency needs of
people affected by conflicts and disasters
Turkey
Turkey hosts the largest refugee population in the world of 4 million people. Out of those, 3.7 million
are Syrians, who fled the ongoing conflict that has been ravaging Syria for over 10 years, the others
are mainly from Afghanistan, Iraq and Iran. The vast majority of refugees in Turkey live outside
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camps amongst the Turkish population with limited access to basic services. The EU funds
humanitarian projects in Turkey to help vulnerable refugees receive the support they need in close
coordination with the Turkish authorities. In 2021, the EU humanitarian assistance reached more
than 2.4 million vulnerable refugees in Turkey.
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The Emergency Social Safety Net (ESSN)
Hiba’s schooling ended abruptly when the war in Syria started, and with her
subsequent move to Istanbul. Her dream is to become a musician to give
people hope with her songs. Things have not been easy for Hiba’s family.
“We are facing financial challenges,” she says. Hiba buys daily necessities
like bread and vegetables with an EU-funded debit card. She is one of 1.8
million people who received support through the EU’s humanitarian
© IFRC, 2021
flagship programme in Turkey in 2021: the
Emergency Social Safety Net
(ESSN).
The ESSN is a social assistance scheme that helps the refugee
population buy what they need mostly through monthly cash transfers. It is the single largest
humanitarian programme in the history of the EU and implemented by the International Federation
of Red Cross and Red Crescent Societies and the Turkish Red Crescent
117
. To help vulnerable refugees
during the coronavirus pandemic and economic challenges, the EU has further adapted its
humanitarian response to meet newly emerging needs. For example, the EU increased the monthly
transfer value by 30 % and provided one-off payments to help refugees with the devastating
economic impact of coronavirus.
Conditional Cash Transfers for Education (CCTE)
Emel wants to be a doctor when she grows up. Her family left war-torn Syria for Turkey eight years
ago. Emel now attends school in Turkey, and her family receives regular cash transfers as part of the
EU's largest-ever humanitarian programme for education in emergencies.
The Conditional Cash
Transfers for Education (CCTE)
aims to encourage school enrolment and to improve pupils'
attendance by supporting vulnerable refugee families whose children attend school regularly through
bi-monthly cash transfers. “She started going to school and making friends with other children,” says
Emel’s mother Veheba. “The support has made a big difference.” Implemented by UNICEF, in
collaboration with the Turkish authorities and the Turkish Red Crescent (TRC), the CCTE helped over
625 000 children with cash support to continue their education in 2021, and just under 35 000
children received child protection services to further ensure their enrolment.
These flagship programmes have been complemented by other humanitarian aid projects addressing
protection issues, including registration, legal counselling, psychosocial support, access to civil
documentation, and specialised healthcare services.
117
In July 2021 ESSN successfully handed over the most vulnerable refugees, to another EU funded project: C-
ESSN (Complementary ESSN). As a result of this transition, from July 2021 ESSN continued to assist 1.5 million
people.
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Western Balkans
In
Bosnia and Herzegovina,
in 2021 the number of refugees and migrants present in the country
varied between 3 500 and 8 000, with the majority accommodated in the EU-funded reception
centres located in the Sarajevo and Una Sana Cantons. In 2021 the humanitarian situation has
improved and is no longer seen as a crisis, thanks to the concerted efforts of humanitarian partners,
investment in proper infrastructure by the EU but also strong engagement of national and local
authorities. The establishment of the multipurpose centre in Lipa, opened in mid-November 2021,
has helped to increase the reception capacity in the country to nearly 5 300 beds. In 2021, the EU
allocated EUR 5 million in humanitarian aid. The actions implemented by the Danish Refugee Council
and Save the Children addressed the most urgent needs of refugees, asylum seekers and migrants,
allowing the beneficiaries to access basic healthcare services including COVID-19 testing and
treatment, mental health and psychosocial support. The EU humanitarian funding also provided
specialised protection services for vulnerable individuals and outreach assistance directed towards
those sleeping in inadequate conditions.
4.5.5. Crisis response and preparedness
In the
Western Balkans,
the EU swiftly reacted with a crisis response action to increase community
stability in the area when tensions towards the presence of migrants from parts of the host
community in
Bosnia and Herzegovina
flared up in early 2021. Furthermore, the existing Instrument
contributing to Peace and Stability (IcSP) engagement in the
Western Balkans
continued notably on
the implementation of the
Serbia-Kosovo dialogue and with a new set of confidence building
measures in Kosovo
through cultural heritage protection.
In
Turkey,
actions through the IcSP continue to respond to the regional consequences of the conflict
in
Syria,
notably by enhancing access to services and facilitating the integration of refugees and
migrants as well as strengthening the resilience of host communities.
Moreover, support to the search and rescue capacities of the Turkish Coast Guard was completed.
4.6.
Overseas countries and territories (OCTs)
4.6.1. Introduction (policy developments)
The OCTs have been associated with the EU since the Treaty of Rome. They are not sovereign
countries but maintain special constitutional links with three Member States: Denmark, France and
the Netherlands. Cooperation with the OCTs is based on EU values and shared policy priorities. OCTs
are considered important EU outposts in their respective regions.
The new Decision on the Overseas Association including Greenland (DOAG)
118
updated the legal
framework of the EU OCT partnership. The DOAG frames the EU-OCT political and policy dialogue,
and trade and financial support of the EU to the OCTs’ actions. Such actions contribute to their
economic and social development and help them in tackling challenges such as climate change and
biodiversity loss. For the first time, the DOAG incorporates the Greenland Decision, placing
cooperation with all OCTs firmly within the same instrument and source of funding, the EU Budget
(OCTs other than Greenland previously benefitted from the European Development Fund).
118
Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas countries and
territories with the European Union including relations between the European Union on the one hand, and
Greenland and the Kingdom of Denmark on the other:
EUR-Lex - 32021D1764 - EN - EUR-Lex (europa.eu)
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The EU has earmarked financial support of EUR 500 million to the OCTs for 2021-2027. The resources
available to the OCTs are (Annex 1 of the DOAG): 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; a non-allocated reserve of EUR 13 million for emerging needs and EUR
22 million for technical assistance.
Three regional programmes will foster cooperation among OCTs in the Caribbean, Pacific and Indian
Ocean regions respectively that share similar challenges and priorities. Finally, a dedicated intra-
regional envelope of EUR 15 million will for the first time encourage cooperation with neighbouring
ACP and other third countries and EU outermost regions.
4.6.2. Working together towards the SDGs
The partnership supports the OCT’s sustainable development and promotes EU values in the wider
world. Interventions promote long-term sustainable economic development and welfare in the OCTs.
In the coming years, the Green Deal is emerging as a pivotal priority for the partnership given the
specific vulnerabilities and needs of the OCTs as islands. This includes climate action, environment,
biodiversity and sustainable energy transition, as well as digital technologies, circular economy and
investments for sustainable growth and jobs, which are all very relevant areas for OCTs. In addition,
support to education and youth will continue to contribute to OCT’s sustainable development.
EU – OCT actions pursue the following goals of the 2030 Agenda and the UN SDGs:
SDG 2 End hunger, achieve food security and improved nutrition and promote sustainable
agriculture
OCTs share particular vulnerabilities resulting in a complex set of food security and nutrition
challenges. For 2021-2027, the EU will support sustainable agriculture, food security and nutrition in
the Pacific region (Regional multiannual indicative programme (MIP), EUR 36 million) and in Sint
Eustatius (EUR 2.9 million). Complementary work with other SDGs (SDG 3 on health, SDG 4 on
education and SDG 5 on gender equality and women’s empowerment) is essential to strengthen the
human development of each OCT.
SDG 4 Quality education
Access to quality education fosters equality and is essential for achieving sustainable growth and
jobs. This is the rationale of the main priority area of EU cooperation with Greenland 2021-2027 with
EUR 202.5 million earmarked for education support.
Through the Erasmus+ programme, the EU also supports higher education opportunities and mobility
for students and academia in all OCTs, although Heading 2 funds are used for these territories. This
facilitates generation and sharing of knowledge, reinforcing intercultural dialogue and
understanding. OCT participation has more than doubled since 2018, in the number of both projects
and beneficiaries. From 87 projects with 41 beneficiaries (total EUR 3.2 million) in 2018, participation
grew to 177 projects and 95 beneficiaries (EUR 5.5 million) in 2020.
SDG 6 Clean water and sanitation
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As part of the broader EU support to access to water and sanitation, interventions related to the
construction of wastewater collection systems and of treatment facilities contribute to delivery on
SDG 6. The 2021-2027 MIP for French Polynesia will invest up to EUR 31.1 million in the priority area
of water and sanitation, a key challenge in this archipelago of 75 inhabited islands.
SDG 7 Affordable and clean energy
Sustainable energy is key to achieving the 2030 Agenda and Paris Agreement targets and meeting the
long-term objectives of the clean energy transition and decarbonisation process. The 2021-2027
MIPs for New Caledonia (EUR 30.9 million), Sint Maarten (EUR 7.7 million) and Saba (EUR 4.1 million)
will support sustainable energy transition through developing the necessary policy, legal framework
and infrastructure in the energy sector, thereby providing further impetus to ensure access to
sustainable energy.
SDG 8 Decent work and economic growth
The envisaged EU support 2021-2027 for sustainable tourism (Saint Pierre et Miquelon, EUR 27
million), green growth (Greenland, EUR 22.5 million), sustainable agriculture (Sint Eustatius, EUR 2.9
million) and digital (Aruba, EUR 14.2 million) will drive progress in ensuring sustained economic
growth, full employment and decent work.
SDG 13 Climate action, SDG 14 Life below water and SDG 15 Life on land
The OCTs are especially vulnerable to climate change and environmental degradation due to their
geographical locations and characteristics. The ongoing all-OCT thematic programme, Green
Overseas GO, 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, and showing the
vital importance of these areas to all OCTs.
EU support to protecting biodiversity will continue to be the priority area for cooperation with the
French Southern and Antarctic Lands in 2021-2027 (EUR 4 million). This will build on the on-going
Indian Ocean regional programme which aims at improving surveillance and observation of
terrestrial and marine nature and restoring ecosystems. The 2021-2027 MIP for Saint-Barthélemy
(EUR 2.5 million) will support disaster risk management and climate adaptation.
In addition, the on-going BEST Initiative has helped OCTs to promote the EU's environmental
standards and provided an incentive for local actors to engage in environmental actions. The new
LIFE programme 2021-2027 will continue to scale up the actions in OCTs on biodiversity and nature
conservation.
All ongoing programmes have advanced SDGs 13, 14 and 15 on the ground as a good basis for future
work. The European Green Deal will inform and inspire new EU-OCT cooperation on environment,
climate change and biodiversity.
SDG 17 Partnerships for the goals
The 2019-2024 Commission took office with the mandate to ensure a stronger Europe in the world in
the spirit of reinforcing partnerships. By these means the geopolitical Commission strives to advance
EU strategic interests and objectives abroad and defends a rules- and values-based international
order in an increasingly polarised world. The EU-OCT partnership, enshrined in the DOAG, is an
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integral part of this approach to advance issues of common interest. The progress achieved so far will
be consolidated and reinforced in the coming period.
4.6.3. Implementation
Institutional dialogue
The institutional political and policy dialogues foreseen in the previous OAD and the newly adopted
Decision on the Overseas Association including Greenland (DOAG)
119
have continued throughout the
year despite the sanitary circumstances prevailing in 2021 due to the COVID-19 crisis. Four tripartite
consultation meetings were held in April, July, October and December 2021, chaired by the
Commission, with participation from OCTs and relevant EU Member States. Two partnership working
parties took place - one on environment, climate change and sustainable energy in June and one on
trade and regional integration in November 2021.
Bilateral cooperation (territorial and regional)
The implementation of the DOAG is carried-out through MIPs. MIPs set out the priority areas for EU
financing and cooperation. Programming dialogues and internal consultations during 2021 resulted in
11 of 15 MIPs for EU-OCT cooperation adopted in December 2021, as detailed below. Four further
MIPs will follow as soon as possible.
OCTS in the Caribbean region
With the adoption of five MIPs for Aruba, Saba, Sint Eustatius, Sint Maarten and Saint-Barthélemy,
cooperation will focus on digitalisation and green deal as shared priorities. The remaining three MIPs
(Bonaire, Curaçao and Caribbean Regional) require further dialogue with the OCT authorities and will
be adopted as soon as possible.
The cooperation with Dutch OCTs has achieved good progress in the implementation of the 11th
EDF. Bonaire and Aruba are two successful examples with significant results achieved despite COVID-
19 constraints. Cooperation with Bonaire advanced well in the field of youth with the establishment
of a childcare regulation and comprehensive child development centres. Higher education
cooperation with Aruba also saw significant progress with the roll out of the innovative STEM
curriculum designed by the university programme.
OCTs in the Pacific region
The adoption of two MIPs for New Caledonia and French Polynesia will reinforce our partnership
with these territories and focus our cooperation on the green deal priority. The remaining MIP for
Wallis and Futuna requires further dialogue with the territorial authorities and will be adopted as
soon as possible.
Our cooperation with Pacific OCTs achieved good progress with the implementation of the 11th EDF.
New Caledonia continued to undertake efforts in the employment sector through better access to
training programmes. French Polynesia mitigated adverse effects of the pandemic on the tourism
sector with a positive deployment of its tourism strategy, and a follow-up strategy has been drafted
119
Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas countries and
territories with the European Union including relations between the European Union on the one hand, and
Greenland and the Kingdom of Denmark on the other:
EUR-Lex - 32021D1764 - EN - EUR-Lex (europa.eu)
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and is under the review and consultation process. Wallis and Futuna expanded digital services linked
to the Tui-Samoa broadband cable1, improving tele-medicine facilities in the territory.
Greenland
Greenland benefited from a contribution of EUR 33.22 million from the 2020 EU budget focusing on
education. This programme supports the reform of the school system, contributing to improving
school management and upgrading teachers’ skills. The newly adopted MIP will deepen the
education sector reform in Greenland with a new two-year budget support programme of EUR 60
million about to start in 2022. In addition, a new Green Growth sector will support the Government’s
effort to expand clean energy, protect and make the most of Greenland’s natural riches, and develop
sustainably.
Saint-Pierre-et-Miquelon
In Saint-Pierre-et-Miquelon, satisfactory progress was made in implementing the sustainable tourism
pillar of the Strategic Development Plan for the territory. Despite the pandemic, the territory was
able to undertake measures to mitigate the impacts of the crisis as well as to build a more resilient
tourism sector post COVID-19.
Regional and all-OCTs cooperation
One thematic and three regional programmes are being implemented under the 11th EDF. The 12 UK
territories continue to benefit from these programmes until their closure following the UK’s
withdrawal from the EU. The Pacific regional programme (PROTEGE, EUR 36 million) contributes to
protecting biodiversity and enhancing renewable natural resources, the Caribbean regional
programme (ReSEMBID, EUR 40 million) focuses on resilience, sustainable energy and marine
biodiversity, and the Indian Ocean regional programme (EUR 4 million) aims to improve the
surveillance of terrestrial and marine ecosystems in the French Southern and Antarctic Lands,
restoring ecosystems and reinforcing prevention. The all-OCTs thematic programme (Green
Overseas, EUR 17.8 million) focuses on sustainable energy, climate change and disaster risk
management.
The Caribbean regional programme, which is also our main channel of COVID-19 support for
Caribbean OCTs, accelerated its implementation. All grants for projects are now being contracted and
carried out by the beneficiaries, despite earlier challenges with the calls for proposals. The
programme also achieved significant results with a certificate course on disaster risk financing.
The Pacific regional programme advanced notably with the sharing of best agricultural practices
among the OCTs. The programme has been extended by one year (until October 2024) in response to
implementation delays due to the pandemic.
The Indian Ocean regional programme completed its second year of implementation. Important
activities have already been carried out, particularly for environmental monitoring and the
preparation of biosecurity measures (feasibility studies and planification is on-going for four
operations).
Green Overseas successfully conducted its inception phase in 2021 and started working with the
beneficiaries to exchange best practices and refine areas of collaboration for the upcoming
implementation of pilot projects. It will run until 2026.
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Finally, through an operating grant in 2020, the Commission continued supporting the OCT
Association (OCTA) in its mandate of representing the OCTs and facilitating dialogue between the EU
and OCT partners and the overall implementation of the partnership.
Lessons learnt
Budget support is generally a preferred implementation modality for OCTs’ territorial allocations. It is
an efficient way of addressing cross-cutting, long-term and structural challenges, of focusing on the
results of territorial policies, and of maintaining a constructive policy dialogue. Practice confirms that
this modality provides satisfactory results in OCTs through a high level of appropriation from local
authorities.
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Saint-Pierre-et-Miquelon-EU cooperation:
Archipelago’s economy (SDG 8)
Reinforcing
the
Following the 1990’s fishing moratorium, which caused severe
economic and demographic challenges to Saint-Pierre-et-
Miquelon, the EU has been providing support to boost the
archipelago’s economic resilience.
© Henryk Sadura/Shutterstock.com
The EU supported the implementation of the Government’s
Strategic Development Plan, favouring economic diversification and demographic stability. The EU
has supported Saint-Pierre-et-Miquelon’s budget with an average envelope of EUR 4 to 5 million per
year since 2006, which is approximately 40 % of the Archipelago’s investments.
This allowed Saint-Pierre-et-Miquelon to boost infrastructure, transport, sustainable tourism and
entrepreneurship. The support contributed to an increase in the number of tourists (+39 %) and
registered companies (+27 %) and a decrease in unemployment (-54 %) from 2009 to 2019. More
recently, the COVID-19 pandemic has put important socio-economic pressures on the tourism sector,
but measures were undertaken to mitigate the impacts of this crisis and to build a more resilient
economy post COVID-19.
Bonaire-EU cooperation: Empowering Bonaire’s youth (SDG 4)
A significant proportion of Bonaire’s young population faces
social hardship due to growing up in vulnerable single-parent
households. For this reason, the EU and Bonaire joined hands to
build better social and developmental prospects for children in
this Dutch OCT in the Caribbean. Youth empowerment is at the
heart of the EU-Bonaire partnership agenda.
© Stephan Kogelman/Shutterstock.com
In Bonaire, the EU support contributed to key milestones: firstly,
the adoption of childcare regulations and secondly, the operationalisation of two comprehensive
child development centres. These centres offer a stimulating space for the youngest members of
society to enhance their social, physical and intellectual potential. Strong attention is given to
improve the quality of educational programmes within these centres. Thirdly, in 2021, a pilot
initiative of inclusive childcare for children with special needs was also introduced by six childcare
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organisations together with one centre’s multi-disciplinary care team ensuring no kid is left behind.
The pilot project is mostly aimed at children aged 1 to 12 who have special needs.
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5.
5.1.
Managing Aid
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 will be 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+). 2021 is the first year
of implementation of the NDICI-Global Europe and the first operational results are only expected to
materialise as of 2023, given the programming and implementation cycle. Indeed, due to the
inevitable time lag between financing an intervention and implementing the intervention and
generating results, no results –in terms of outputs or outcomes of NDICI-funded interventions– can
be reported so far. This time lag between financing and results is a structural feature that is common
to any multiannual financial framework (MFF) cycle. Therefore, results data presented in chapter 3 of
this report refers to results achieved from ongoing interventions, financed under the previous MFF.
Reporting on IPA III instrument
The IPA III instrument 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, 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 IPA Performance Framework (IPA PF) is an additional tool, currently being updated, to meet
monitoring and reporting requirements. 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.
As 2021 is the first year of implementation of IPA III, the first operational results are only expected 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 and
implementing the intervention and generating results, no results –in terms of outputs or outcomes of
IPA III-funded interventions– can be reported so far. Therefore, results data presented in chapter 3 of
this report again refers to results achieved from ongoing interventions, financed under the previous
MFF.
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5.1.2. Monitoring Systems and use of new IT platform
Over the course of the past years, the 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 is essential. As of today, various monitoring arrangements (internal and external) are in
place focusing on different aspects of results-oriented monitoring such as implementation progress
and achievement of objectives.
In 2021, the Commission reached significant milestones in the transition towards using the new IT
platform OPSYS as a 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 Commission. It will assume a pivotal role in ensuring that the
Commission can deliver on the ambitious reporting obligations as set for the implementation of the
NDICI-Global Europe and IPA III instruments in the years to come.
For the first time, the Commission services (EU Delegations and Headquarters) and all implementing
partners will perform monitoring activities via the same tool, including direct reporting by
implementing partners and Commission staff; and data aggregated for reporting at Headquarters,
etc.
The Commission implemented a comprehensive outreach campaign to its staff as well as
implementing partners to introduce the new concepts and features of the system, which supports
reporting on results.
Since October 2021, the Commission engaged in the digitalisation of operational data on results from
7 000 EU-funded interventions. This process will last for the whole year 2022 and it will serve the
purpose of encoding and storing the data necessary to report on results. This will eventually take
place on a regular basis and feed annual corporate reporting requirements.
5.1.3. New reporting system on SDGs
At the end of 2018, the Working Party on Development Finance Statistics of the OECD’s Development
Assistance Committee (DAC WP-STAT), which oversees the official development assistance (ODA)
reporting among DAC members, decided to start reporting on SDGs in ODA statistics.
The decision made before the end of 2018 to adjust reporting rules allowed reporters to have near -
complete annual data sets by SDGs as of year 2019. Data quality of the SDG field has been steadily
improving but remains a work in progress. A complete set of encoding and reporting guidelines
should be made available during the course of 2022.
Targeted SDGs are recorded at commitment and payment level as per ODA reporting taxonomy. The
transversal nature of SDGs is taken into account, as one single commitment is often connected to
several SDGs (with the system allowing up to ten entries). To mitigate double-counting issues and to
enhance the integrity of the measure, it is now mandatory to report one single main SDG and up to
nine ‘significant’ SDGs for each project. With this system, the sum of financial flows related to the
‘main’ SDG will always equal the total amount of financial flows, but it is possible to report several
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SDGs for one project by using the ‘significant’ SDG field, and therefore to visualise how many projects
have been reported as being relevant to any given SDG, thereby providing an enhanced
understanding of interlinkages between SDGs. 2021 is the first year to benefit from this new system.
The coverage of SDG reporting has improved since 2019 and will further improve in future reporting
years. For year 2021, SDGs were reported for 99 % of commitments (up from 97 % in 2020) and 77 %
of payments (up from 74 % in 2020). With the caveats mentioned above about methodological
approaches under constant review and improvement, it is possible to the trace all the projects, and
aggregate the related volume of commitments, which contribute to the implementation of each
individual SDG.
Figure 8. Synthesis of the volume of commitments for each SDG
(As main SDG and significant SDG) in 2021
Commitments
6.000
5.000
4.000
3.000
2.000
1.000
0
SDG 1 SDG 2 SDG 3 SDG 4 SDG 5 SDG 6 SDG 7 SDG 8 SDG 9 SDG SDG SDG SDG SDG SDG SDG SDG
10
11
12
13
14
15
16
17
Table 6: Volume of commitments for each SDG (see Figure 8 above)
SDG Description
SDG 16: Peace and Justice Strong Institutions
SDG 01: No Poverty
SDG 03: Good Health and Well-being
SDG 08: Decent Work and Economic Growth
SDG 09: Industry, Innovation and Infrastructure
SDG 17: Partnerships to achieve the Goal
SDG 04: Quality Education
SDG 10: Reduced Inequality
SDG 13: Climate Action
SDG 02: Zero Hunger
SDG 11: Sustainable Cities and Communities
SDG 15: Life on Land
SDG 05: Gender Equality
SDG 07: Affordable and Clean Energy
Main SDG (million
EUR)
2 914
2 850
2 098
1 918
1 624
1 541
868
557
373
212
179
174
136
131
Significant SDG
(million EUR)
1 198
2 406
1 007
3 345
2 313
2 562
1 086
3 849
2 057
716
2 271
579
5 222
2 493
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SDG Description
SDG 12: Responsible Consumption and
Production
SDG 06: Clean Water and Sanitation
SDG 14: Life Below Water
Total
Main SDG (million
EUR)
92
62
19
15 747
Significant SDG
(million EUR)
1 169
2 473
202
34 949
SDG 16, 1, 3, 8 and 9 are dominant as main SDGs. While SDGs 16, 1, 3 and 8 were already ranked high
in previous years, SDG 9 is now significantly more targeted than during previous years. SDG 5, 10, 8
and 17, as well as the set of SDGs with a strong environmental component, are the most mentioned
as significant SDGs, which confirms their cross-cutting nature.
In order to be able to assess the interlinkages between SDGs, a table showing the relationship
between main and significant SDGs has been created. As mentioned above, this highlights the overall
strong cross-cutting nature of SDGs 5, 8 and 10, as well as the interaction with the set of SDGs with a
strong environmental component. In addition, the table (illustrated by the graphic in Figure 9) shows,
for each individual main SDG, which are the other SDGs most often associated through EU actions.
Figure 9. Interlinkages between SDGs (by number of projects) in 2021
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It is also possible to analyse targeted SDGs by the income group of countries, showing how EU
priorities are implemented depending on country income level.
As an example, the two charts below (see Figure 10) show the SDG targeted by the European
Commission in Least Developed Countries (LDCs) and Upper Middle-Income countries (UMICs) in
2021 (commitments). In the case of LDCs, SDGs 16 (Institutions, peace and justice) and 1 (Poverty
reduction) logically dominate as main SDGs while more transversal SDGs such as 5 (Gender), 10
(Inequalities) and 13 (Climate) are marked as ‘significant’. Targeted SDGs are more evenly spread in
UMICs with a focus on poverty education and education as main SDGs, and a relatively even spread
of significant SDGs.
Figure 10. Commitments by SDG to LDCs and UMICs in 2021 (million EUR)
The exercise of reporting on SDGs is at the end of its third year and is improving constantly. For the
first time this year, the annual report incorporates a table on SDGs in the financial annexes and as of
next year, it will be possible to further improve the analysis of the data, for example with an
evolution of the targeting of SDGs during the MFF.
5.1.4. Evaluation: review of the work programme
Commission evaluation services are responsible for steering, coordination, monitoring and reporting
on the evaluation function. They produce timely, high-quality evaluation results to ensure evidence is
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available 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 Commission
departments that implement EU projects and programmes. In 2021, the Commission published eight
strategic evaluations in the field of EU external and humanitarian action, comprising:
Evaluation of the EU cooperation with the Islamic Republic of Mauritania (2014- 2020);
Evaluation of the EU cooperation with the Central African Republic (2008- 2019);
Evaluation of the EU's external action support in the area of migration assessing the EU’s
external action contribution in the policy area of migration in the period 2008-2018;
Evaluation of the EU's cooperation with Serbia over the period 2012-2018;
The evaluation of EU cooperation with Montenegro over the period 2012-2019;
The mid-term evaluation of the IPA Cross Border Cooperation programme;
Ex-post evaluation of the EU Aid Volunteers Initiative (EUAV), 2014-2020; and
The European Union’s humanitarian response to the Rohingya refugee crisis in Myanmar and
Bangladesh (2017-2019).
As of December 2021, strategic evaluations were in progress for the following areas:
1. Sixteen thematic or partnership evaluations, including seven in the humanitarian sector:
a) European Union Support to Sustainable Agri-Food Systems between 2014 and 2020;
b) European Union support to Rule of Law and anticorruption in Partner Countries;
c) ‘Collect More, Spend Better’: PFM including domestic resource mobilisation and
utilisation;
d) EU’s cooperation with the World Bank 2014-2021;
e) EU’s cooperation with the UN in external action;
f) EU’s Initial Response to COVID-19 crisis in Partner Countries and Regions;
g) EU support to climate change and environment in neighbourhood and enlargement
regions;
h) TAIEX;
i) Implementation of EU Blending in the EU Neighbourhood and the Western Balkans
regions in 2015-2021;
j) Humanitarian access;
k) Disaster preparedness;
l) Humanitarian Food Safety;
m) Humanitarian Nutrition;
n) Humanitarian Response to Sudden Onset Disasters;
o) International Committee of the Red Cross; and
p) International Federation of the Red Cross.
2. Fifteen country or regional level evaluations, including four in the humanitarian sector on:
a) Angola;
b) Somalia;
c) Malawi;
d) Guatemala;
e) Papua New Guinea;
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f)
g)
h)
i)
j)
k)
l)
m)
n)
o)
Tajikistan;
Moldova;
North Macedonia;
Iraq;
Tunisia;
Ukraine;
Yemen;
Turkey;
Horn of Africa; and
Sahel.
3. Two budget support evaluations on:
a) Kyrgyzstan; and
b) Morocco.
2021 was dominated by the transition from one multiannual framework to another which was
reflected in a lower than usual number of evaluations. An evaluation of the Security Sector
Governance Facility (IcSP/2020/422-305) was conducted and completed and an evaluation of the
Instrument contributing to Stability and Peace (IcSP) Support to civil society organisations was
launched but not completed in 2021.
5.1.5. Lessons learned
Some key lessons emerged from the evaluations of EU cooperation published in 2021.
Evaluation of the European Union (EU) cooperation with the Central African Republic (CAR) 2008-
2019
The evaluation concluded that the EU strategy in the CAR had evolved during the evaluation period
of 2008-2019 and responded in an adequate manner, considering the regional and international
geopolitical context. The EU approach had a positive impact on the reconciliation and stabilisation
process of the country through the effective application of the integrated approach. However, the
frequent violation of the APPR
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shows that the attempt to turn the military conflict between the
Government and armed groups into a non-violent political conflict has not succeeded. The EU has
succeeded in providing a relevant response to the needs of the population in terms of supporting the
rehabilitation of basic services: water, health, and education. However, the EU’s strategy for the
resumption of the social contract has proved to be insufficiently sensitive to the conflict, thus limiting
the achievement of objectives and putting a pressure on the sufficiency of the EU’s approach to be
addressed. The added value of the EU interventions in CAR is found in safeguarding and supporting
the continuous functioning of the State, filling in the gaps. Although the EU support has contributed
to rural resilience by strengthening the productive capital and rural organisations, it still achieves
precarious results whereas the persisting security challenges can nullify the results at any time.
Finally, the diversification of instruments has made it possible to reach the population better,
highlighting a continuous need for sectoral restructuring and overall coherence. The Bêkou Trust
Fund has made it possible to adapt assistance to the co-existing emergency and development needs
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Political Agreement for Peace and Reconciliation (APPR) signed in Bangui on 6 February 2019 by the
Government and 14 armed groups.
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by responding to them. Despite contributions to the Bêkou Fund, the involvement of Member States
(France, The Netherlands, Italy and Germany) and also Switzerland was insufficient at strategic level
(Nexus) and remained formal.
Evaluation of the European Union (EU) cooperation with the Islamic Republic of Mauritania 2014-
2020
The evaluation concluded that the EU approach, covering broad sectors (governance, inclusive and
sustainable growth), has played a key role in the formulation and implementation of national
sectoral strategies as well as in the development of the country, however, the regional dimension has
only been partially addressed. The EU strategy has not followed a clear single strategic framework,
and the focus on the institutional dimension, has revealed its limitations. The implementation has
been confronted by significant issues of partnership and ownership. The absence of real national
supervision and the lack of participation of non-traditional donors have undermined the national
coordination. The EU has succeeded in improving governance and the rule of law, the protection of
human rights, the emergence of credible civil society actors and the reform of public finances. The
healthcare sector governance and the equitable accessibility to essential healthcare services in a
sustainable manner have improved, responding to the new pandemic situation. The effects of the EU
support on the security dynamics of the sub-region are not very visible at this stage with the projects,
at the national level, primarily targeting prevention. The EU has contributed to the country's dynamic
in terms of inclusive growth, against a backdrop of climatic hazards, institutional weaknesses, and
regional insecurity but the effects are mainly modest and felt at the local level. The management of
migration was conducive in terms of security, however, the results on economic potentialities and
the protection of migrants' rights are still limited. Exchanges and synergies with the Member States
were regular, but have gradually become implementing partners for the EU, reducing their country
cooperation.
Evaluation of the EU's external action support in the area of migration
The evaluation assessed the EU’s external action contribution in the policy area of migration in the
period 2008-2018, in particular in the areas of labour legal migration, smuggling of migrants and
trafficking in human beings in Enlargement, Neighbourhood, Sub-Saharan Africa and Asia (Central
and South) regions. The evaluation concluded that over the period reviewed, the EU developed an
increasingly comprehensive approach to migration, including smuggling of migrants and trafficking in
human beings (not strictly speaking, a migration issue, but closely related). The EU’s Development
and Enlargement policies, which themselves evolved over the reference period, offered a solid
foundation for implementing the EU’s external policy agenda. The range of financing instruments,
modalities, and channels available is impressive (if sometimes confusing to outsiders). Yet, despite
some progress, the EU has found it challenging to deliver results in the three areas here covered –
legal (labour) migration (especially), smuggling of migrants and trafficking in human beings – that are
in line with its aspirations.
Strategic, country-level evaluation of the EU’s cooperation with Serbia over the period 2012-2018
The findings of the evaluation confirm the EU’s clear and positive contribution to reform in Serbia
and highlight areas of good practice which could be modelled in other sectors or countries to good
effect. The report also identifies areas in which EU cooperation could be strengthened to improve
the effectiveness and the accountability of its cooperation. For example, more attention could be
given to the underlying logic of how goals will be achieved to enhance effectiveness of programming.
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In addition, system-wide interventions are more likely to contribute to greater impact and
sustainability. In this regard, investing in the ability of the national authorities to manage institutional
change itself is critical for sustainability, while accountability mechanisms were vital elements of
more successful interventions.
Evaluation of EU cooperation with Montenegro
The evaluation concluded that there is widespread appreciation and recognition of the role of the EU
in supporting Montenegro’s path towards accession. The trident of accession framework, policy
dialogue and financial assistance has combined to produce an unusually influential and supportive
mechanism for encouraging national reforms and investment. Policy dialogue within the framework
of the Stabilisation and Association Agreement, as well as the Economic Reform programme, are a
vital contribution to policy development in Montenegro. Dialogue brings evidence-based analysis of
progress towards EU membership and builds appreciation of policy options available. The Instrument
for Pre-Accession (IPA) financial assistance, together with accompanying technical assistance can
provide practical means to realise policy goals. There are, however, a number of areas where
challenges remain and where there are opportunities for increasing the overall effectiveness and
impact of EU cooperation. Some of these include: IPA process and design of assistance,
Montenegro’s institutional arrangements as well as monitoring, evaluation and learning efforts.
Evaluation of the IPA Cross Border Cooperation (CBC) programme
Key lessons learnt identified by the evaluation include the following elements: (i) The IPA CBC Is
designed and implemented under a largely common approach in very differing local contexts, which
needs a broader range of tools if it is to be effective in addressing challenges in the border regions;
(ii) There are too many indicators and a recognised need to simplify indicators and develop common
indicators; (iii) Changing the role of the Joint Technical Secretariat to remove them from the
procurement process has enabled them to more readily engage with local stakeholders, although it
does risk removing all local knowledge from grantee selection; (iv) The use of NGOs and consultants
to support implementation is a practical first step but is expensive and limits the amount of funding
that flows through to end beneficiaries; (v) Small scale infrastructure can be an effective tool in
complementing administrative capacity building but larger infrastructure needs to be connected to
addressing a clear cross border challenge and to be connected to broader regional development
strategies; (vi) The development of truly joint operations that address cross border challenges rather
than just addressing development issues in the border regions is a lengthy and complicated process
that is best addressed by strategic projects; (vii) Placing a greater focus on sustainability in the grant
evaluation process is needed to address the reliance on ongoing donors support for most
interventions; and (viii) Collaboration and coordination at a IPA CBC level between individual IPA CBC
programmes enables the exchange of best practice and builds collaboration.
Ex-post evaluation of the EU Aid Volunteers Initiative, 2014-2020
The ex-post evaluation of the EU Aid Volunteers Initiative (EUAV) covers the period 2014-2020. After
a delayed start-up, the Initiative contributed to the capacity of the EU to deliver humanitarian aid,
although on a limited scale and mostly short-term, by increasing participant organisations’ capacities,
harmonising standards, enabling new partnerships and the deployment of well-trained volunteers.
The Initiative was not sufficiently integrated into the humanitarian aid and development work of the
EU, and it was less effective in promoting EU humanitarian principles. By 2019, only 62 % of the EUR
115 million initial EUAV budget had been committed. Heavy administrative processes and procedural
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requirements initially hampered implementation. The management of the Initiative was however
cost-effective overall. The security management system ensured volunteer security and limited EU
reputational risk. However, it substantially reduced volunteer access to humanitarian settings. The
Initiative was designed to improve EU volunteering through a holistic approach, but it lacked clarity
on the role of volunteering in humanitarian contexts and on the hierarchy of the objectives pursued.
Recommendations suggest clarifying the relationship between design and objectives, revisiting the
security management system, strengthening localisation, facilitating learning, reinforcing
communications and interagency coordination, and developing a ‘toolkit’ addressing the specific
needs of partners and volunteers.
Evaluation of the European Union’s humanitarian response to the Rohingya refugee crisis in
Myanmar and Bangladesh (2017-2019)
The evaluation concluded that Commission humanitarian aid services have, despite a budget that
was not proportionate to the needs, contributed to meeting objectives of preventing and alleviating
human suffering, maintaining human dignity and upholding humanitarian principles. This also
encompassed a key role in terms of coordination and advocacy. As a large-scale dignified return for
the Rohingya is unlikely in the foreseeable future, further development of a joint strategic approach
has become even more pressing. Strategic recommendations targeted EU actions in Myanmar and
Bangladesh were: (i) Develop a multi-year strategy aligned with the nexus joint response plan; (ii)
Continue innovative approaches at both a country and global level to promote localisation; (iii)
Refine advocacy strategies to promote changes in policy environments; and (iv) Promote consistent
attention to cost effectiveness by partners. A recommendation for Commission humanitarian
services is to ensure timely and adequate funding to maintain the EU’s position as a key facilitator
and influencer in the response.
Evaluation of the EU’s implementation of the DG ECHO Thematic Policy Document “Gender: Different
Needs, Adapted Assistance” of July 2013, (2014-2018)
The evaluation finds that the implementation of a gender policy framework has improved gender
integration in operations. Targeted actions have significantly increased but overlooked some
vulnerabilities. Funding of global capacity building by Enhanced Response Capacity was effective. The
DG ECHO gender policy framework is in appropriate coherence with relevant policies at EU and
global levels, and the EU leadership of the Call to Action on Protection from Gender-Based Violence
in Emergencies provided significant added value to the initiative. Dialogue with partners about
gender is appreciated but not systematic; the Gender-Age Marker´s rating process is still often a ‘box
ticking’ process. Implementation is supported by Commission experts but knowledge of e-training
opportunities is limited among the larger staff population as well as local implementing partners.
Gender issues could be further integrated among the Commission’s nexus priorities.
Recommendations include more training on the Marker, adaptation of targeted actions, and
increased advocacy on issues of importance, such as intersectionality, within the nexus.
Evaluation of European Union’s humanitarian assistance in Syria (2016-2018)
The evaluation concludes that the Commission services have made a unique contribution to
strengthening the humanitarian footprint across the country and improving coverage of response in
hard-to-reach and besieged areas. The response was in strong alignment with humanitarian
principles, and well-coordinated with other humanitarian actors. Commission assistance has played a
significant part in the delivery of food, non-food items, water and shelter to the population in need.
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The cash-based interventions have enabled communities to prioritise their own essential needs. Its
support has also enabled primary healthcare providers to continue to function and deliver
healthcare. Overall, the Commission played a lead role in donor coordination on the Syria response,
acting as a bridge between partners and donors, and individual EU Member States rely heavily on its
presence on the ground.
Evaluation of the Security Sector Governance Facility
The evaluation of the Security Sector Governance Facility found the project highly relevant to EU
policies and IcSP priorities, flexible and of high technical quality. The evaluation also pointed out the
good synergy with EEAS and Commission services, both at Headquarters and field levels. In addition
to the direct benefits of the project activities, the evaluators also pointed to the impact of the Facility
to enhance the profile of the EU as a credible partner on security. In terms of improvements, the
evaluators recommended limiting the scope of potential interventions – ‘[w]hile assignments should
continue to ensure ownership of security initiatives by beneficiaries, they should be more aligned
with EU peace and security priorities and should receive strong support from EUDs’. Furthermore,
they recommended that each assignment include dedicated components on human rights and an
increased involvement of local security experts to ensure buy-in and sustainability of the support
provided.
5.2.
Aid delivery modalities
5.2.1. Budget Support
Budget support was instrumental in helping countries and OCTs in their response to the continuing
COVID-19 pandemic and in their recovery efforts, in coordination with EU Member States ( in a
‘Team Europe’ approach). This is evidenced by the external evaluation of the EU COVID response in
2020, which concluded that budget support can be powerful to support partner governments facing
a rapid onset crisis in quickly providing funds to frontline public services.
In 2021, EU budget support continued offering additional fiscal space to partner countries to mitigate
the negative impact of the pandemic with EUR 1.18 billion of payments in support of their policies
and the COVID-19 response in particular. This support was not as massive as in 2020 (EUR 3 billion of
budget support) and was closer to the yearly average witnessed between 2014 and 2019 of around
EUR 1.5 billion.
The effort made to frontload resources in 2020 as the crisis hit could not be fully offset in 2021, as
the new Global Europe instrument entered into force and the formulation of new operations started
within that new framework. The persistence of political blockages and the rise of new crises
hindering cooperation with governments and putting on hold budget support programmes
exacerbated this trend, for instance in Afghanistan, Ethiopia, Mali and Myanmar.
Namibia – Early childhood development and education
EU budget support contributed to the provision of integrated
early childhood development service delivery, particularly for
vulnerable communities. It focused on personal protective
equipment for COVID-19, learning materials and feeding
supplements, and ensured learning continuity and safety for
young children in poor areas during the 2021 lockdown. A
© European Commission
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communication campaign promoted respect for children with disabilities.
EU budget support continued to cover a large variety of sectors, with payments in 59 partner
countries or OCTs. In 2021, budget support payments accounted for 11.5 % of the payments by the
Commission within the framework of the Global Europe instrument or under predecessor
instruments. Sector reform performance contracts remained the most used type of budget support
with about three-quarters of the portfolio, followed by State and Resilience Building Contracts and
SDG Contracts, both general budget support, making up the other quarter.
Nepal – Reducing disaster risk for education
In Nepal, EU budget support contributed to building back school
infrastructure damaged in the 2015 earthquake. It focused on
the safe reconstruction, repair, and maintenance of schools in
both earthquake-affected and non-affected areas. Since 2016,
EU budget support has contributed to upgrading more than 4
300 educational institutions in the 14 most earthquake affected
districts. Nearly 350 classrooms in non-earthquake affected
districts were also retrofitted.
© European Commission
Sector reform performance contracts (SRPCs) are implemented in all sectors covered by the SDGs, of
which the largest are education (see Namibia and Nepal case studies), agriculture and health. SRPCs
remain instrumental in helping stabilise post-conflict, post-disaster and fragile situations. They
support the achievement of SDGs by targeting countries’ vital state functions, building up resilience
and helping deliver basic services to populations. They were particularly useful to help with the
pandemic consequences. The other type of general budget support, the SDG Contract, is
implemented in more stable contexts. It offers a platform to address several SDGs for a national
reform agenda around multifaceted priorities, such as youth (Senegal) or sustainable and inclusive
development (see Cabo Verde case study).
Eradicating extreme poverty in Cabo Verde
In 2021, EU budget support provided urgently needed financial
support. This payment helped fund essential social and
economic measures, as the COVID-19 crisis dramatically
undermined the development trajectory of this highly
indebted and tourism-dependent archipelago. In 2020,
extreme poverty was still affecting 13.2 % of the population.
This programme will support Cabo Verde in achieving its goal
to eradicate extreme poverty by 2026. It will also promote
greener economic development and gender equality.
© European Commission
As a performance-based tool, the results of a country’s policies are the core of budget support
operations. The first incentive for results lies in the four criteria which condition the provision of
budget support: (i) A relevant and credible public policy for national development or sector reforms;
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(ii) Stability-oriented macroeconomic policies; (iii) Progress in public finance management and
revenue mobilisation; and (iv) Budget transparency and oversight. Results are further incentivised by
performance tranches whose amounts vary proportionally to the achievement of specific targets
drawn from countries’ policies. In all programmes, gender equality is promoted, notably through
dedicated targets identified within the set of indicators of the supported reform plan. Budget
support’s contribution to countries’ results is evaluated regularly (see evaluations for Morocco and
Kyrgyzstan for examples).
98 000 hectares reforested in Morocco with EU support
The EU budget support programme on sustainable forest
management contributed to a paradigm change in the
Moroccan forest policy, shifting from a prohibitive approach to
sustainable and participatory management. It helped bring the
legal framework on forest management and protected areas in
line with international standards.
With the contribution of the EU budget support, 12 new sites
over an area of 41 000 hectares were designated as wetlands
of international importance and five national parks now meet international standards. Moreover, the
EU budget support programme contributed to the reforestation of 98 000 hectares and to the
increase of officially registered forest areas to 6.37 million hectares. This has also led to a reduction
in land disputes in four priority provinces of the country.
© European Commission
In line with the European Green Deal, budget support is increasingly called on to support climate
action, environment protection and biodiversity. The dialogue performed with countries’ authorities
and stakeholders mainstreams this global priority in all policies. Budget support also promotes
sustainable finance tools, green public procurement/investment and green taxation.
Local development and biodiversity in Colombia to support peace
EU budget support addresses socio-economic challenges in regions
previously affected by armed conflict. It promotes conservation and
sustainable management agreements between the authorities and the
rural communities in protected areas. It supported economic
development and the reduction of both geographical and gender
disparities.
Between 2016 and 2021, it contributed to the rehabilitation and/or
recovery of nearly 28 000 hectares of forest. More than 300 local green
businesses and 4 500 indigenous, peasant and vulnerable families
benefited from EU support. This success encouraged the Colombian
environment ministry to increase its financial support to national parks.
The improvement of the business environment and investment climate is a priority for EU budget
support in parallel with the European Fund for Sustainable Development + and the Global Gateway
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initiative. This helps countries recover from the crisis, meet their infrastructure needs and stimulate
private sector development. Scaling up public and private investment is conditional upon a conducive
policy and regulatory framework, human development, economic governance and public
administration reform, on which the EU puts emphasis in the Western Balkans and the European
Neighbourhood.
Better services to Ukrainians through public administration reform
From 2017 to 2021, the EU supported better services, digitalisation, and
decentralisation in Ukraine. Ukraine significantly improved access to
administrative services and their quality. Over 120 such services were
made digitally available, increasingly through a single online gateway and
© Pixabay/smpratt90
a mobile application with over 10 million users. It allowed the delivery of
paperless services and reduced the time that citizens and business spent on administrative
processes. The EU assisted in developing a network of nearly 1 000 administrative service centres –
one-stop-shops all over Ukraine. From 2020 to 2022, more than 100 000 families with new-borns
benefited from the e-baby service, bringing together ten previously separate services for childbirth
including civil registration. The EU supported the development of a more professional civil service. A
single online gateway for all vacancy announcements has handled over 80 000 applications to date.
New merit-based selection methods were introduced, including for senior management positions in
ministries and state institutions.
Reforms are essential to foster a better climate for private investors, including for EU companies, and
to secure shared and sustainable returns on investment. In addition, in coordination with the IMF,
budget support includes a strong focus on macroeconomic stability, another key component of the
investment climate and a constraining factor in scaling up investment in the light of the global debt
crisis.
5.2.2. Blending
To finance the SDGs and respond to an increasingly complex world, development finance needs to
rely on a combination of funding sources. To increase the impact of ODA, public and private funds
must be leveraged as efficiently as possible. The EU must be ready to adapt and further develop its
financial instruments and policy tools for investments outside the EU if it is to deliver on its ambitious
commitments to sustainable development.
In this context, through blending the EU uses limited amounts of public grants to mobilise financing
from partner financial institutions, like international development banks and the private sector, for
projects that will do most to help countries develop. The strategic use of a limited grant element can
support projects with low financial return but a high economic (i.e. societal) return. Blending projects
aim to achieve sustainable growth and reduce poverty.
The EU Blending Framework currently comprises seven active regional blending facilities
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- The
Africa Investment Platform (AIP), Asia Investment Facility (AIF), Caribbean Investment Facility (CIF),
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The Western Balkans Investment Framework (WBIF), the regional blending facility in the Western Balkans, is
covered in the Chapter on Enlargement. Additional information can also be found in: www.wbif.eu/
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Investment Facility for Central Asia (IFCA), Investment Facility for the Pacific (IFP), Latin American
Investment Facility (LAIF), and Neighbourhood Investment Platform (NIP) - and covers all regions of
EU external cooperation. The EU-Africa Infrastructure Trust Fund had allocated all its remaining
resources in 2019. These facilities comprise the blending instruments of the European Fund for
Sustainable Development+ (EFSD+). From the creation of the first blending facilities in 2007, more
than EUR 8.6 billion of EU grants are estimated to have leveraged over EUR 74 billion of loans by
financial institutions and regional development banks for a total investment volume of more than
EUR 132 billion.
The amounts approved in 2021 are presented in the Table below.
Table 7: EU Blending contributions approved in 2021
Blending facilities
NIP
AIP
ITF
LAIF
Thematic
IFCA
AIF
CIF
IFP
Total
2021 (million EUR – not including fees)
252.97
159.57
-
36.46
143.85
6.77
36.40
4.87
-
640.89
In addition, in 2017 the European Commission developed the External Investment Plan (EIP), a new
EU initiative offering an innovative way to attract more investment, in particular from businesses and
private investors, to countries in Africa and the EU Neighbourhood. At the core of the EIP, the
European Fund for Sustainable Development (EFSD) combines a new guarantee instrument with two
regional investment platforms - the Africa Investment Platform (AIP) and the Neighbourhood
Investment Platform, NIP.
The EFSD has approved guarantees and blending investments in approximately 237 projects in Sub-
Saharan Africa and the EU Neighbourhood, with an EU contribution exceeding EUR 5.7 billion to date.
This financing is expected to mobilise over EUR 55 billion of investments in financial inclusion and
support to micro, small and medium enterprises (MSMEs), as well as in renewable energy, energy
efficiency, irrigation, water and wastewater management, agriculture, transport, cities and digital
sectors, and social and education sectors.
Both within the EFSD framework and the other Regional Facilities, investments in the year 2020 and
in 2021 were reoriented to support the EU global response to the COVID-19 pandemic and its
economic consequences. Several projects provided support to the health sector, while others
focused on providing finance to sectors and entrepreneurs most likely to be affected by the crisis.
This included sectors such as MSMEs and entrepreneurs such as women, young people and other
marginalised groups. As mentioned above, the EFSD is now being supplemented by its successor, the
EFSD+, and bringing these implementing modalities to all regions under the Global Europe heading.
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5.2.3. EFSD+, EU budget Guarantees
The European Fund for Sustainable Development (EFSD) and its successor EFSD+ aim to bridge the
gap between the financing already available in 2017, when the EFSD was created, and the substantial
amount of financing required to create jobs and boost growth to meet the UNs’ SDGs by 2030. They
address the financing gap through blending operations worldwide, with grants, technical assistance,
financial instruments and budgetary guarantees, according to the best-adapted mix for each
financing situation. 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.
Sixteen guarantee agreements have been signed between 2017 and 2021 for approximately EUR 1.75
billion
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, with the expectation that they will facilitate investments upwards of EUR 11 billion. Other
guarantees, carried over from the EFSD, are currently under discussion to be financed under the
EFSD+. They cover a variety of fields including renewable energy, new technologies such as fintech
and agritech, MSME support and access to finance, municipal infrastructure, transport and logistics,
foreign exchange markets, and access to credits for rural/agricultural activities. Under the EFSD,
partnerships have been established with more than ten different financial institutions, ranging from
international powerhouses such as the European Investment Bank (EIB), the European Bank for
Reconstruction and Development (EBRD) and the International Finance Corporation (IFC from
IFC/WB Group), to European national development banks and agencies such as AECID (the Spanish
development agency), AFD (the French development agency), CDP (the Italian development bank),
COFIDES (the Spanish development bank), FMO (the Dutch development bank), KfW (the German
development bank), and PROPARCO (the French development bank). Under the EFSD+, the
Commission expects to work not only with these partners but also to add several additional financial
institutions that have been approved to manage EU funds under blending and/or budgetary
guarantees.
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 two instruments, not only the geographic applicability of the
support can be 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. The EFSD+ is organised into investment windows corresponding to priority areas
of activity for investment.
This new budgetary guarantee tool has played an important role in the EU’s global response to
COVID-19. In 2021, a guarantee of EUR 200 million was extended to cover the EIB’s COVAX II loan to
the GAVI Alliance, the second of its kind. This was essentially a top-up to the transaction structure of
the Vaccine Component under the European Health Platform undertaken in 2020. It is expected to
ensure equitable access globally by supporting low-income and lower-middle-income countries’
efforts to procure vaccines.
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Including the COVAX guarantee agreement, which is mentioned further below, the only one signed in 2021
and financed under the EFSD+, since this latest agreement is considered to be a top-up of a previous EFSD
agreement.
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Most of the sixteen guarantees agreements mentioned are accompanied by technical assistance
contracts, to facilitate and strengthen the roll-out of the guaranteed operations. To date, technical
assistance contracts linked to guarantees add up to EUR 117 million, of which EUR 24 million have
been contracted in 2021.
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. The 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’ public institutions 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 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.
The Commission and the Practitioners’ Network have developed a joint action plan on mobilisation of
European public sector expertise in international development cooperation 2021
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and presented it
to the Council of the European Union. This resulted into the adoption of the Council Conclusions
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calling for a renewed push to improve coordination, synergies and learning between the EU and
Member States on how European public sector expertise can be mobilised in support of policy
dialogue and Team Europe initiatives.
5.2.5. Twinning and TAIEX
The geographic extension of the Institution Building instruments TAIEX and Twinning to developing
countries and territories was continued in 2021, the second year of the pilot phase. TAIEX and
Twinning INTPA mobilise EU Member States’ public expertise to support partner countries within the
context of the Agenda 2030 and in achieving the SDGs.
Although COVID-19 influenced the pace of implementation, flexible arrangements for Twinning and a
shift to virtual and hybrid activities for TAIEX proved effective in taking forward these technical
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European Development Cooperation PDF Publications Database (dev-practitioners.eu)
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EU public sector expertise: a key asset at the service of EU's partner countries - Consilium (europa.eu)
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cooperation tools. TAIEX INTPA expanded to ten new beneficiary countries in 2021. Furthermore, a
series of TAIEX INTPA events in the Dominican Republic (judiciary), Uganda (food security) and
Uzbekistan (justice) have all triggered interest in continuing peer-to-peer cooperation through
Twinning initiatives. 22 TAIEX INTPA activities were implemented through all geographic regions in
wide ranging policy areas from e-governance, anti-corruption, sustainable finance to sanitary-
phytosanitary.
In 2021, implementation of four Twinning projects started in Zambia (anticorruption and audit),
Kyrgyzstan (digitalisation), and Namibia (standards); four additional projects were prepared for
launch in early 2022 in the Dominican Republic (judiciary), Madagascar (SPS), Rwanda (vaccine
manufacturing) and in Uzbekistan (justice).
Beneficiary institutions of the pioneering Twinning projects in Zambia appreciate the capacity
building focus of the tool and the opportunity to learn from the European approach to public
administration reform. This form of cooperation between peers in the public sector has the potential
to create trust and build long-term institutional partnerships in other interested countries, including
Tanzania, Malawi and Uganda.
5.3.
Improving ways of working
5.3.1. Simplification of procedures
Legislative Framework
Under the multiannual financial framework (MFF) 2021-2027, a single instrument (the
Neighbourhood, Development and International Cooperation Instrument-Global Europe – NDICI-
Global Europe)
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integrates most external financing instruments that existed as separate basic acts
under the former multiannual financial framework, including the 11th European Development Fund
(EDF). As a result, alongside NDICI-Global Europe, the Decision on the Overseas Association, including
Greenland (DOAG)
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, the European Instrument for International Nuclear Safety Cooperation
(INSC)
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and the Instrument for Pre-Accession assistance (IPA III)
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constitute the financing
instruments for external action under the new multiannual financial framework.
The aim of merging these previously existing external financing instruments into one single
instrument is to achieve simplification in an area that was characterised by a multitude of diverging
provisions. Furthermore, the DOAG and IPA III build upon cross-references to the NDICI-Global
Europe, thereby harmonising the implementation provisions. Moreover, the integration into NDICI-
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Regulation (EU) 2021/947 of 9 June 2021
establishing the Neighbourhood, Development and International
Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU and repealing
Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1).
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Council Decision 2021/1764 of 5 October 2021
on the association of the Overseas countries and territories
(OCTs) with the European Union including relations between the European Union on the one hand, and
Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association, including
Greenland (OJ L 355, 7.10.2021, p. 6).
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Council Regulation 2021/948 of 27 May 2021
establishing a European Instrument for International Nuclear
Safety Cooperation complementing the Neighbourhood, Development and International Cooperation
Instrument-Global Europe on the basis of the Treaty establishing the European Atomic Energy Community, and
repealing Regulation (Euratom) No 237/2014 (OJ L 209, 14.6.2021, p. 79).
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Regulation 2021/1529 of 15 September 2021
establishing the Instrument for Pre-Accession assistance (IPA
III) (OJ L 330, 20.9.2021, p. 1).
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Global Europe of 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 new Partnership Agreement with
the Organisation of African, Caribbean and Pacific States (OACPS)
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will no longer include a Financial
Protocol, nor technical provisions laying down specific implementation and management procedures
for cooperation with OACP States.
Direct Management
The main novelty in 2021 was the introduction of the concept of eSubmission for international open,
restricted and negotiated procurement procedures. This allows economic operators to respond
electronically to procurement procedures by preparing submissions (i.e., requests to participate or
tenders) and submitting them electronically in a faster and more secure way. eSubmission will take
place through the Funding & Tenders Portal which will become the platform for Economic Operators
to participate in procurement procedures. For procedures managed by partner countries as well as
simplified and local open procedures, hard copy submission will still be applicable.
Following the COVID-19 pandemic, actions have been taken for further digitalisation, facilitating
remote working conditions. Since 2020, depending on the COVID-19 situation, scanned invoices and
electronic copies of tenders and proposals have been accepted and, in 2021, the decision was taken
that those documents do not need to be regularised.
As for the further streamlining of pre-award procedures and procurement, the main priority is to
progressively complete eProcurement and eGrants developments, which will become the contract
management tools enabling paperless contract management. In the long run, they will replace the
current legacy system CRIS.
Indirect Management
In 2021, important milestones were reached in the negotiations concerning new or updated Financial
Framework Partnership Agreements, which simplify discussions on substantive actions by framing
rights and obligations in advance.
In order to ensure swift contracting, the possibility to conclude contribution agreements and
contribution agreements for Financial Instruments (CAFIs) by using Qualified Electronic Signature has
been introduced.
In 2021, following the adoption of Commission Decision
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that establishes the framework for the
acceptance of simplified forms of funding, several partners have submitted requests to initiate the
corresponding process. Furthermore, Commission services also proposed, in 2021, a procedure for
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In December 2020, the negotiators reached political agreement on a new broad agreement. In order to
provide for the completion of the procedures for entry into force of the new EU-OACPS Partnership
Agreement, the application of ACP-EU Partnership Agreement is further extended until 30 June 2022, unless
the new Partnership Agreement enters into force or is provisionally applied before that date (Decision No
3/2021 of the ACP-EU Committee of Ambassadors of 26 November 2021 to amend Decision No 3/2019 of the
ACP EU Committee of Ambassadors to adopt transitional measures pursuant to Article 95(4) of the ACP-EU
Partnership Agreement (OJ L 441, 9.12.2021, p. 3).).
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Commission Decision C(2020)5790 of 7 September 2020 authorising the use of lump sums, unit costs and
flat-rate financing (simplified cost options) of an entity entrusted with the implementation of Union funds
under indirect management or through grants awarded outside a call for proposals to such entities.
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the acceptance of cost accounting practices already accepted by national authorities under
comparable funding schemes, in line with Article 185.3 of the Financial Regulation
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.
5.4.
Communication & transparency
5.4.1. Communication
In 2021, Commission services continued to work closely together and with the EEAS and EU
Delegations/Offices to improve external and strategic communication and to tackle false narratives
on the EU’s international partnerships, enlargement and neighbourhood policies. Information and
communication activities addressed audiences both in the partner regions and in the EU.
With the entry into force of the new multiannual financial framework (MFF) 2021-2027, a new
approach to EU communication and visibility also became the norm, with an impact on all outreach
activities in the field of external action.
Communication activities were implemented around the key policy events in the Western Balkans,
notably social media campaigns and packages of communication products around the Berlin Process
Summit, the EU-WB Brdo Summit and the annual Enlargement Package. Other outreach events
included the Roma Awards and the TAIEX 25th Anniversary event, which also included a high-profile
social media visibility campaign leading up to the event.
Under the EU regional communication programme for the Western Balkans, main activities included
the ongoing development of the web portal WeBalkans.eu, the second large-scale integrated
regional communication campaign focusing on the EU economic and investment plan reaching 7
million people via TV and radio, 4.5 million via outdoor advertising, and a further aggregated reach of
37 million through the paid digital campaign, as well as the expansion of the Young European
Ambassadors Network, now numbering 120 young people from across the region.
Activities implemented within the EU Neighbours Regional Communication programmes in the
Eastern and Southern Neighbourhood (‘EU Neighbours East’ and ‘EU Neighbours South’) included
thematic online campaigns (e.g., with influencers in the South and Young European Ambassadors in
the East) and virtual outreach events (e.g., campus tours, webinars, and media briefings). The web
portal for EU Neighbours East was fully revamped in 2021. Due to the continued COVID-19 pandemic,
all activities had to remain fully online throughout the entire year.
The outreach and engagement rates on social media channels across the Enlargement and
Neighbourhood regions increased significantly throughout 2021, showing that the social media
strategy is successful. On Facebook, the number of followers increased by 43 045 compared to 2020,
reaching 609 728 followers and making it the third highest Commission account. On Twitter the total
number of followers increased by 21 920, reaching 132 903 followers, and the number of followers
on Instagram grew to 27 118.
Throughout another year of COVID-19 restrictions, the Commission continued to strengthen its
strategic communication and outreach of the EU on its external action, with a particular focus on
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Regulation (EU, Euratom) 2018/1046
of the European Parliament and of the Council of 18 July 2018 on the
financial rules applicable to the general budget of the Union, amending Regulations (EU) No 1296/2013, (EU)
No 1301/2013, (EU) No 1303/2013, (EU) No 1304/2013, (EU) No 1309/2013, (EU) No 1316/2013, (EU) No
223/2014, (EU) No 283/2014, and Decision No 541/2014/EU and repealing Regulation (EU, Euratom) No
966/2012 (OJ L 193, 30.7.2018, p. 1).
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digital activities. The Commission developed an integrated approach to strategic communication and
public diplomacy, pursued its large-scale campaign #WhatDoYouSee? in Africa with plans to expand
to other regions, and reached a wider audience through key digital events such as the Lorenzo Natali
Prize, the Kapuscinski Development Lectures and our SDG-themed campaign #2030IsNow.
With the entry into force of the new Multiannual Financial Framework (MFF) 2021-2027, the
Commission and the EEAS worked in close collaboration to design and implement a joined-up
approach to strategic communication and public diplomacy for activities funded under NDICI-Global
Europe at country, regional and global levels. Strategic communication and public diplomacy
activities will be designed to ensure that awareness, understanding and perception of the EU’s
contribution to country-level outcomes is commensurate with the scale, scope and ambition of the
EU’s engagement among clearly defined target audiences. This new approach to EU communication
and visibility aims to ensure a more coherent ‘one-EU’ vision and voice in partner countries, focusing
communication and outreach efforts on the EU’s values, interests, priorities and impact in the
country, region and world.
The Commission further demonstrated the EU’s position in the world on key political priorities such
as the support to vaccination in partner countries, the Finance for Africa Summit, our cooperation
with the FAO on food security, COP26, the adoption of NDICI-Global Europe and the launch of the EU
Global Gateway strategy. In addition, the ‘Team Europe’ approach was illustrated through flagship
initiatives, developed and identified in close coordination with EU Member States at capital and
country levels.
Commission services social media presence for international partnerships was key in another year
where offline activities were limited and the reach of the Commission’s @EU_Partnerships accounts
increased significantly, with close to 125 000 more followers across Facebook, Twitter and Instagram.
Activities on Facebook and Instagram specifically targeted young audiences both inside and outside
the EU; communication on Twitter targeted policymakers and development experts and
organisations, all enhanced by state-of-the art multimedia and engaging design material.
The Commission’s communication campaign #WhatDoYouSee? was rolled out in seven African
countries with a reach of 88 % of the targeted audience and an engagement rate of 3.8 %. The
campaign built on the stories of beneficiaries of EU’s partnerships across physical and digital media
and was amplified by national influencers with large social media followings. This endeavour
demonstrated the importance of engaging with our audience through common values and interests.
The Commission’s flagship event, the European Development Days, was organised online for the first
time on 15-16 June 2021 and gathered a record-breaking 19 969 platform visits and 46 051 unique
session views. The InfoPoint pursued its online activities with 49 virtual conferences and 72 visits
organised supporting the Commission’s external communication and partnerships with policymakers,
civil society, non-governmental organisations, and young people. Eleven Kapuscinski Development
Lectures (KDL) were held online and in hybrid format and gathered more participants than ever
(average of 555 per lecture compared to 250 the previous year).
5.4.2. Transparency
The Commission remains firmly committed to transparency in line with the new European Consensus
on Development in which the EU and its Member States reaffirm their commitment to applying the
key principles of development effectiveness. The Commission has continued to improve the
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accountability and openness of its development assistance through publishing timely, comprehensive
and forward-looking data in line with the International Aid Transparency Initiative (IATI) standard,
the OECD-DAC Creditor Reporting System (CRS) and Forward Spending Survey. It also completed its
second reporting on Total Official Support for Sustainable Development (TOSSD) and continued to
report on Team Europe’s global response to COVID-19 through the joint reporting mechanism.
The Commission constantly invests in more complete and high-quality publication of data and aid
information and remains committed to developing innovative tools to present and use development
cooperation data more effectively. For instance, the Joint Programming (JP) tracker was revamped in
late 2021 to also offer an overview of Team Europe initiatives (TEIs) and was renamed the TEI-JP
tracker. In the tracker, information can be found on the TEIs and JP process being pursued in each
partner country or region, participating ‘Team Europe’ members, and any supporting material, such
as JP documents and ODA infographics. It is also possible to explore aggregated information on TEIs
and JP across regions by utilising the dashboards. Moreover, the Commission continues to improve
performance and user-friendliness of the EU Aid Explorer tool, which allows users to freely explore
EU and Member States’ spending on official development assistance. The Commission furthermore
continues to engage in bilateral outreach with its Member States on transparency issues. For
example, it established a Team Europe group on the ‘IATI Connect’ platform, a space where
European providers can share and exchange knowledge, experiences and best practices on IATI data
reporting and data use in order to improve transparency of development assistance and strengthen
development cooperation.
5.4.3. Learning
The Commission services organise a wide range of learning events to train colleagues in Delegations
and at HQ 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, to the general public.
In 2021, the Commission services for Learning development adjusted learning methods to reflect the
situation caused by the COVID-19 pandemic, offering virtual classes and live online events that
replaced traditional classroom training. In 2021, almost 600 online learning events in different
formats were organised and involved 9 155 participants. Participants from EU Delegations
represented 67 % of the total. The themes covered a large range of topics such as development
policies, thematic areas, aid delivery methods, finance and IT systems.
In addition, the EU International Partnerships Academy, the Commission’s first open online learning
platform, welcomed 5 040 new users in 2021, which represents a 45 % increase in the number of
registered users in one year, reaching more than 16 000 currently enrolled users in total. The
platform has delivered more than 3 000 certificates, made available over 360 different open learning
resources and reached more than 750 000 visits. User’s overall satisfaction rate with the Academy is
88 %, based on the results obtained from the satisfaction survey sent to all users in December 2021.
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