EUROPEAN COMMISSION Brussels, 4.5.2017 SWD(2017) 151 final JOINT STAFF WORKING DOCUMENT

Consultations and stakeholders’ views Accompanying the document Joint Communication to the European Parliament and the Council for a renewed impetus of the Africa-EU Partnership {JOIN(2017) 17 final}

{SWD(2017) 150 final}



Contents 1. INTRODUCTION 2. STAKEHOLDER GROUPS AND CONSULTATION ACTIVITIES 3. THE RESULTS OF STAKEHOLDER CONSULTATIONS 3.1. Results by horizontal issue 3.1.1. The Africa-EU partnership 3.1.2. Youth 3.1.3. Stakeholder inclusion, particularly civil society 3.1.4. Job creation, entrepreneurship, trade and investment 3.1.5. Professional training, education and skills development 3.1.6. Human rights and governance 3.1.7. Migration 3.1.8. Peace and security 3.1.9. E-commerce and the digital economy 4. CONCLUSION Annex I — List of main consultation events Annex II — Stakeholder suggestions not taken on board



1. INTRODUCTION This joint staff working document accompanies the joint communication to the European Parliament and the Council Renewed impetus for the Africa-EU partnership. The stakeholder consultations for the review of the Africa-EU partnership began in late September 2016 (for the context in which the consultations have been carried out, please see full list in Annex I). The objective of the consultations has been to gather views and opinions from a wide range of key stakeholders involved in the Africa-EU partnership and in preparations for the Africa-EU Summit to be held on 29-30 November this year in Abidjan. The document presents the results of a first consultation round on setting the priorities for the future Africa-EU partnership and the Summit itself, summarising the various contributions received and, based on analysis of this input, identifying the areas that stakeholders regard as priorities for deepening the Africa-EU partnership in the next three years. It should consequently be borne in mind that further consultations with relevant stakeholders will take place throughout the preparation process in 2017 leading up to the Summit. 2. STAKEHOLDER GROUPS AND CONSULTATION ACTIVITIES As part of the consultation strategy, input was collected from a wide range of stakeholders ranging from relevant public authorities (including EU and African Union (AU) member states) to civil society organisations and their representative umbrella organisations (including civil society organisations (CSOs), non-governmental organisations (NGOs), human rights organisations and youth organisations). African experts working particularly for and on the AU (including AU Commissioners and Representatives of AU Commission (AUC) departments), think tanks and foundations were also consulted. The consultation approach involved building on and using available information from all relevant existing consultations, such as those held for the joint communication on the renewed partnership with the countries of Africa, the Caribbean and Pacific, the review of the joint Africa-EU strategy 2007-2016 and the revision of the European Consensus for Development. Consultation activities involved open public consultations, online feedback, high-level political bilateral meetings and both targeted and ad hoc consultations. 3. THE RESULTS OF STAKEHOLDER CONSULTATIONS This chapter analyses the results by issue and highlights the main priorities identified by the consultations. 3.1. Results by horizontal issue 3.1.1. The Africa-EU partnership A broad spectrum of stakeholders, from civil society and African experts working particularly for and on the AU to African and European think tanks, shared their views and priorities for shaping the future of the Africa-EU partnership. Stakeholders are not unanimous in their perceptions of the way the Africa-EU partnership and the joint Africa-EU strategy have developed since 2007. While some consider that it has gradually progressed, taking into account the changing context in both Africa and the EU, others have more critical views. The 2017 Summit is in general, though, seen by stakeholders as a ‘window of opportunity’ to decide on the future of the joint partnership and launch a high-level political dialogue. The run-up to the Summit should be used to think strategically within the EU and the AU/AU Commission, revisit the partnership, reach a common understanding and agree on a future approach. A need was expressed to understand the real purpose behind this strategic partnership and to make it useful - reinstating the philosophy behind the partnership on both sides. More specifically, stakeholders stressed that African countries should have a more consistent and unified position in relation to the Africa-EU partnership, particularly on what they want to achieve from the negotiations at the Summit. The European Union is a key partner in development efforts in Africa and should continue to assist Africa’s processes for democratic transition and economic transformation. The partnership should build stronger dialogue, which helps to strengthen multi-stakeholder participation in many pro-development agendas, from policy design to evaluation, supporting research and the advocacy capacity of non-state actors. Also, development must not just be limited to a few. The EU and Africa / the AU should together ensure a level playing field that meets the agreed standard that ‘nobody is left behind’ and development programmes should focus on key issues to achieve that purpose. Africa and the EU should be equal partners in tackling the current global crisis, the economic and financial crisis, rising inequalities, increasing economic protectionism and rising nationalism. Some stakeholders expressed concerns that the Africa-EU relationship is not always seen as a meeting of equals. EU engagement should find synergies with both the 2030 Agenda for Sustainable Development and the AU’s Agenda 2063, which are becoming points of reference for many countries on the African continent; they are forming a shared roadmap and encouraging increased harmonisation between countries and regions. African experts working particularly for and on the AU discussing common values between Europe and Africa were enthusiastic and confident about the future and expressed the need to maintain a solid relationship with Europe and the African diaspora. Think tanks were in this sense more inclined to berate the EU for its inconsistencies, i.e. the vagaries of EU foreign policy and the inconsistency between defending European values and pursuing more specific interests such as security. The EU was seen as yet to achieve a desired change in attitude that would allow it to strive for a solid partnership, based on values and principles and a common agenda. This was seen as a pressing issue that needed to be addressed. The next phase of dialogue and cooperation should develop an approach based on common interests, taking into account that the AU had already agreed on a long-term strategy and that the EU was failing to show the necessary commitment to drafting an agenda in its own interest for sustainable cooperation with Africa.

The African experts working particularly for and on the AU more specifically expressed the need for new forms of partnership to effectively tackle global challenges together between the AU and the EU. Any future partnership should tackle the issue of trust head-on, and it was suggested that a mutual accountability framework be introduced as a tool to cultivate trust and promote a culture of mutual accountability between equal partners. They argued that, in so far as African leaders need to be held accountable, so do European partners. According to stakeholders, the current partnership does not allow for an honest exchange of views about challenges. The partnership with the AU is not and should not be only about resources, but also about supporting the diplomatic efforts of the AU internationally. African participants argued that there is a disconnect with European partners’ analyses of problems, and called for more relevant engagement that takes into account their self-identified needs rather than ‘perceived needs’. The joint communication recognises the relevance of stakeholder views and so proposes a revitalised framework for national, regional and continental joint actions between Africa and the EU, and for creating a stronger political relationship by lifting the existing political relationship with Africa to a higher strategic stage and pursuing it at different levels. Lastly, stakeholders shared their views on the results of the partnership and follow-up on Summits, calling for regular progress reviews, the introduction of a proper follow-up/monitoring & evaluation mechanism, and improved use of media plus investment in communication to publicise results. 3.1.2. Youth Views were presented mainly on how young people should be involved in preparations for and in the Africa-EU Summit itself, on their political inclusion and democratic representation, and on the need to offer them sustainable education, employment and economic prospects. In general, strong support was expressed by the majority of stakeholders for ‘Youth’ as a central theme of the Summit. Civil society, NGOs and human rights and youth organisations, in particular, provided opinions and views on the topic — both in relation to the desired outcome of the Summit and the partnership and in terms of young people’s participation in preparations for the Summit itself. African experts working particularly for and on the AU, think tanks and member state ministers, though, also welcomed the focus on young people and stressed the importance of active participation by young people in the Summit, including youth organisations and networks. It was emphasised that both African and European young people should be included in the process of preparing the Summit if it was to be successful. Also, participation should be seen as more than consultation and should involve ‘co-creation’ by young people of outcomes, entailing the need to empower them in the most effective way. Finally, the need to increase awareness of the upcoming Summit among youth organisations was raised. The above-mentioned views will be taken into account in preparations for the Summit. According to civil society and youth organisations, African young people lack support in society and the state and need to be empowered in various ways to take their future into their own hands. The fragility of African young people and their political, economic and social marginalisation must be addressed. The need of the AU and Africa to reconnect with citizens, especially young people, was also expressed. It was noted that Agenda 2063 aims to focus on citizen participation but more needs to be done to ensure that the new generation of Africans connects with the pan-African agenda. It was proposed that EU Delegations could increase their engagement with youth networks and play a role in bringing together youth organisations and African governments so as to overcome the reluctance of some African governments to engage with young people. It should be added, though, that the AU has made ‘Harnessing the demographic dividend through investment in youth’ a thematic priority for 2017 and the EU will support and complement the work of the AU on the matter where possible. Youth representatives from Africa and Europe should identify common goals and proposals to bring forward at the Summit, which could focus on economic and political empowerment, the need to build capacity among the most marginalised groups, creating/supporting strong networks of women and girls, scaling up youth participation in the labour market by strengthening the partnership with the private sector and enhancing skills, and finally, addressing barriers that affect young people’s daily lives, such as conflict and corruption, social exclusion and limited access to jobs. Improved prospects for young people to break marginalisation should be offered through better education prospects, job creation and economic development with a strong focus on labour-intensive sectors. These matters are regarded as highly important and are covered under the second main strand of the joint communication; creating more and better jobs — particularly for youth. Youth participation in decision-making, together with women’s and young people’s inclusion in political processes should be intensified according to stakeholders. Young people in Africa have lost confidence in state institutions, i.e. there is a lack of trustworthy role models in government because of corruption, appointments not being on merit but through connections, and the frequent lack of competence among authorities. The need for reliable data and statistics on youth representation in institutions was expressed. Increased information, training and education in politics for young people should also receive attention. The lack of term and age limits for political leaders must be addressed as a key threat for democracy and particularly relevant to young people. The joint communication recognises that inclusive participation by citizens in public decision-making and in particular the involvement of young people and women in formal political processes is lagging behind, leading to increased frustration and mistrust in state institutions. Moreover, the joint communication presents concrete deliverables on the issue, such as empowerment of women, young people and vulnerable people. This would entail encouraging their participation in decision-making processes and ensuring equal access for all to quality education, including vocational education and training, adequate and sustainable social protection, health care (including reproductive health care and prevention of communicable disease) and enhancing youth participation through the Erasmus+ youth actions. Engagement with positive role models and mentors, such as community leaders and religious leaders, for young people was also suggested, to discourage radicalisation and violent extremism. The need to highlight the tangible benefits of the Summit for young people is important, to avoid raising expectations which cannot be met: i.e. tangible post-Summit goals should be set in relation to young people and the visibility of the Summit for young people and their organisations should be increased. A suggestion by stakeholders was to have the AUC adopt a resolution on the role of young people as equal partners in peace and security in line with UNSCR 2250, which urges states to include them in decision-making. The joint communication upholds ‘youth’ as the central theme for the Summit and acknowledges the many points made by stakeholders, e.g. the need to improve participation in decision-making, ensuring better education opportunities and creating more and better jobs for young people. Stakeholders also rightly call for active participation by young people in preparations for the Summit, and at the Summit itself, and although this will not be included in the joint communication it will be ensured in preparations for the Summit and at the Summit itself. 3.1.3. Stakeholder inclusion, particularly civil society In the consultations, there was criticism that real involvement of stakeholders in the Africa-EU partnership was absent, apart from the regular side-events of the successive Summits, and that the follow-up on decisions and recommendation made at the various stakeholders’ side-events had been weak. More active participation by civil society organisations (CSOs) and the private sector in the partnership was called for, including in the actual preparations for the Summit. In particular, the need for real change in the way the private sector is involved was emphasised. The role of member states on both EU and African side is seen to have been considerably diminished and to be in need of being revitalised. Stakeholders called for member states to be invited to reflect deeply on Europe’s ambitions for Africa, in order to build a strong common approach to the partnership. Despite the increasing importance and participation of CSOs, according to the stakeholders consulted — mainly the CSOs themselves — their situation is not improving in different parts of Africa, putting in danger their essential role in contributing to development and reaching out to the most marginalised. There is still a need to continue working on participation by civil society in decision-making. Civil society participants recommended improving the representation of CSOs, local authorities and the private sector in regional forums at African level. In relation to how the EU should strengthen its partnerships with CSOs and local authorities to support the implementation of the 2030 Agenda, there was unanimous agreement that the EU should recognise the role of non-state actors and support their involvement through development assistance to achieve development goals. CSO stakeholders considered that a debate between the EU and the AU/AUC on the role of civil society organisations in the Africa-EU partnership is urgently needed. The priorities and concerns presented above are addressed in the joint communication, i.e. the EU will strengthen its focus on and support for facilitating, preserving, and broadening the space for civil society engagement in advocacy and policy shaping, and will complement this with action in support of greater civil society participation in continental decision-making processes in Africa. 3.1.4. Job creation, entrepreneurship, trade and investment A majority of stakeholders involved in the consultations rightly put particular emphasis on the need to generate sustainable inclusive development, create and improve access to jobs for young people, foster inclusive and job-generating growth, focus on investment in Africa — promoting an enabling investment and trade climate conducive to sustainable development — and enhance economic relations between Africa and the EU. The importance of creating more and better jobs, especially for young people, is, as mentioned earlier, one of the main strands in the joint communication and the priorities presented by stakeholders have been included. Agriculture and the agrifood industry was stressed as providing considerable scope for employment which could contribute to resolving the crisis in youth employment and to equipping the agricultural and agrifood sector, throughout its entire value chain, with a critical mass of human resources needed to make agriculture and its downstream activities a major engine of development. Smallholder agriculture should be modernised, integrated into value chains and markets and approached as a ‘business’. The priority should also be given to ensuring open markets for African raw and processed agricultural products, supporting integration of African regional markets, improving access to agriculture-related information and land reform, encouraging responsible foreign direct investment (FDI) and domestic investment by financing and helping to improve the business environment and climate to promote private investment, and transferring and adapting appropriate technology. African countries have to pave the way for responsible private-sector investment by creating an enabling business environment, curbing red tape, providing public infrastructure, ensuring climate-smart agricultural solutions and capacity for facilitating the private sector and linking to farmers. This analysis is consistent with research on job creation for young people and economic development, and is contained in the joint communication. However, it is important to note that agriculture and the agrifood industry are not and should not be the only sectors driving job creation and economic growth. Agriculture, the agrifood industry and household businesses are in the short term the most labour-intensive job-creating sectors. Nevertheless, the focus should also be on developing other areas and sectors, as emphasised and presented in the joint communication, such as the blue (ocean-related) economy and digitisation. On specifics, think tanks proposed focusing on lowering the pressure of taxation, improving access to bank financing and committing the state to facilitating access to loans in order to foster entrepreneurship and economic growth. Finally, the Euro Chamber of Commerce advised prudence in relation to promoting free trade and pushing too hard for a continental free trade agreement (CFTA) in Africa. The importance of private investment was emphasised due to its increased importance as foreign aid is unlikely to rise. Thus, a ‘whole of society’ approach, cooperating with those who prove themselves to be effective and legitimate stakeholders, rather than government-to-government assessments, was encouraged by G7 Africa directors. 3.1.5. Professional training, education and skills development A number of stakeholders, including the Euro Chamber of Commerce, African and European think tanks and civil society, stressed that considerable attention must be given to providing access to education and training, particularly for young people in Africa. This view is shared by the EU: advancing knowledge and skills is a central thematic focus in the joint communication. According to stakeholders this should particularly entail:

-investing in effective, inclusive and open education systems; -providing skills-based education, including support for young people in agriculture and value chains, by organising exchange programmes for young Africans; -promoting an innovative, skills-based approach to identifying the needs of stakeholders, markets and the economy — this could be used to identify different jobs in agriculture, build suitable training programmes for agricultural and agrifood entrepreneurship, and support new types of technical schools and ways of coordinating curricula; -developing entrepreneurial skills and capacity to help young people’s inclusion in the socio-professional environment of agriculture and agrifood sectors, including centring the educational system more on entrepreneurship; -contributing to the promotion of ambitious reforms of higher education and quality training at higher level aimed in particular at diversifying and professionalising the supply of training in order to make young graduates more employable and improve their contribution to the densification of the private sector; -improving basic education, literacy and access to education for people without basic skills, and boosting efforts to improve girls’ access to school. These priorities are consistent with both existing and planned deliverables by the EU for deepening the Africa-EU partnership on advancing skills and knowledge and have thus also been reflected in the joint communication, e.g.in promoting joint efforts to facilitate access to primary, secondary and higher education, as well as vocational education and training. Also reflected in the joint communication is the aspiration of the EU to intensify cooperation activities on vocational and entrepreneurial learning, in particular by facilitating private-sector involvement. 3.1.6. Human rights and governance The importance of continuing to work together on governance, democracy and human rights was stressed during consultations — particularly by civil society organisations and human rights organisations. Other stakeholders also put emphasis on these areas, stating that the democracy, rule of law and human rights agenda is under pressure and is therefore more relevant than ever in Africa-EU dialogues. Young African stakeholders stated that it was the major ambition of many young people in Africa to build democracy and rule of law while many Western democracies increasingly seem to be giving up on these values. The priorities raised in the consultations represent a broad spectrum of issues within governance. They include ensuring protection of human rights; ending social and economic exclusion; improving gender equality; securing political stability; fighting corruption, illicit financial flows and economic crime; promoting new modes of governance by bringing together public institutions and the private sector; strengthening African governance architecture (AGA); and finally, addressing tensions between trade interests, access to resources and indigenous land rights. The importance of addressing these challenges is recognised and the majority of the priorities have therefore been taken into account in the joint communication. The EU has a strong and long-standing engagement with Africa on governance at national, regional and continental level as a fundamental element of its relationship. Moreover, the joint communication presents concrete deliverables for addressing the challenges raised above, e.g. support for the AGA platform, regular AU-EU human rights dialogue, fostering cooperation on public finance management with a focus on proactive instruments fighting corruption, and support for African activities in delivering on the values and commitments enshrined in the AU human rights system and instruments. 3.1.7. Migration Migration is a top priority in Africa-EU relations and, as expected, member state ministers, civil society, African experts working particularly for and on the AU and G7 Africa directors raised the issue during consultations. It was recommended that the current debate and cooperation on migration be reinforced, partly by examining more closely both the root causes and consequences of migration for the continent and ensuring a more open and frank dialogue between the two continents. In collaboration with the AU, the EU was encouraged to support efforts to advance African expertise on migration and develop a continental perspective on migration — seeing that movement and changes within Africa are significant. G7 Africa directors emphasised that mobility is crucial to African economies and represents a cross-cutting issue which has to be addressed by a multidimensional approach — if undertaken with respect for international norms, this was seen as capable of fostering socioeconomic progress. The suggestions are valid and chime well with what is already being done and planned at EU level to further improve the partnership between Africa and the EU on migration. They are, therefore, reflected in the joint communication which however is drafted taking into account the fact that there are already a number of existing fora for discussions between Africa and the EU on these issues (Valletta, Rabat and Khartoum processes). Civil society more specifically expressed the need to look positively at migration in terms of Africa’s potential in human resources, overcoming negative images of Africa, especially in migration management, and focusing on the Africa-EU partnership as win-win. Views were also expressed about the need to give space to CSOs — not just governments — in addressing the impact of migration (both within Africa and from Africa to Europe). Maintaining a positive narrative and a fact-based approach to migration — including to mobility and migration as a fact of life — is a key principle in the joint communication. 3.1.8. Peace and security Preventing conflicts, addressing crises and peacebuilding is a central theme of the joint communication and never before have EU security interests been so intertwined with the African continent. A peaceful and secure Africa requires strong political engagement and full use of the AU’s instruments backed with sustainable financial means. It also calls for increased EU engagement, including at national level. The peace and security issues and challenges to be addressed were mainly raised by the African experts working particularly for and on the AU and the G7 Africa directors. Good governance and the rule of law were perceived as necessary to address the triggers of conflict. Also, greater efforts should be made to improve understanding between Europe and Africa on the challenges to justice in Africa. This link between governance, development and security is acknowledged in the joint communication. On the African Union Peace and Security Council (AU PSC), the African experts working particularly for and on the AU noted that there is still a lack of clarity on the issue of subsidiarity and on effective application of that principle, which requires decisions to be taken at the level of government closest to citizens, wherever possible. Participants correctly argued that availability — or scarcity — of resources is a determining factor. Therefore, the current efforts led by Donald Kaberuka to raise at least 25 % of peace support operations from within Africa are critical. However, participants agreed that supporting African initiatives, African institutions and African research does not necessarily mean spending extra money. Other kinds of non-monetary resources can be used to support African initiatives (e.g. diplomatic support). Sharing experience and lessons was also highlighted as an opportunity to cooperate beyond financing. The EU will support the implementation of the AU/Kaberuka plan and work with the AU and the United Nations (UN) towards longer-term financial sustainability options. While the subject of non-monetary resources is not touched upon directly in the joint communication, this is a valid point and is already included in AU-EU collaboration on peace and security. A lack of political will, including a lack of AU member state commitment to implementing the mandate from the AU PSC, needs to be addressed according to African experts working particularly for and on the AU if effective application of the subsidiarity principle is to be ensured. Insufficient operational capacity — e.g. the regional economic communities (RECs) not having the capacity to play the operational role they are expected to play — was also mentioned, along with the view that the AU needed to support the RECs in capacity building by looking at the capabilities needed to implement the mandate and mobilise rapidly. Political legitimacy, including who has the authority to intervene, is also perceived by African experts working particularly for and on the AU as hindering effective application of the subsidiarity principle. At times, this has also led to tension between the AU and RECs. Furthermore, participants noted that some RECs are not the best ‘first responders’ due to vested political interests. The AU could provide an alternative in such situations. 3.1.9. E-commerce and the digital economy