JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Global Europe : A New Approach to financing EU external action
Date: 2011-12-07
Institutions: European Commission, High Representative of the Union
Subjects: EU financing, democracy, development aid, foreign policy, human rights, humanitarian aid, poverty

EUROPEAN COMMISSION 

HIGH REPRESENTATIVE OF THE
EUROPEAN UNION FOR 
FOREIGN AFFAIRS AND 
SECURITY POLICY

Brussels, 7.12.2011 
COM(2011) 865 final 

JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE 
COUNCIL 

Global Europe : A New Approach to financing EU external action 

 
 
 
 
  
 
1. 

CONTEXT 

With 500 million inhabitants, accounting for over 25 % of the world’s gross domestic product 
and  a  fifth  of  worldwide  trade,  the  European  Union  (EU)  is  a  global  player.  Assuming  its 
responsibilities for global governance,  the EU  takes an active  political role and has specific 
regional and global interests. This is underpinned notably by providing more than half of all 
international development aid and being the world’s biggest donor of humanitarian assistance. 
EU's role in global governance is reflected in its active support for democracy, the rule of law, 
the  protection  of  human  rights  and  human  security  alongside  compliance  with  international 
environmental and social conventions, open trade as well as a decent work agenda.  

The world has changed. The present economic crisis underlines the need for Europe to have 
deeper and stronger relations with its partners, including neighbouring regions, as they have a 
major impact on Europe’s financial and economic prospects. Security-related challenges have 
taken on new forms as the world becomes more interconnected. Natural resource scarcities, a 
rapidly growing world population and threats associated with climate change have questioned 
the way we deal with our international partners.  

The developing world is also changing rapidly. A power shift is currently taking place with a 
lengthening  list  of  emerging  powers  entering  the  global  arena.  Brazil,  Russia,  India,  China 
and South Africa in particular have new ways of engaging with the rest of the world and also 
often different values. The rules of global governance are being redefined with the rise of the 
G20.  Many  areas  of  great  interest  to  the  EU,  such  as  sustainable  development,  security 
including  non-proliferation,  disarmament  and  cyber-security,  financial  regulation,  trade  and 
investment, climate change, biodiversity and the use of new technologies require multi-lateral 
solutions.  

In  this  more  fluid  global  environment,  the  EU  has  a  key  interest  to  promote  a  rules-based 
international  system.  Emerging  economies  also  play  an  increasing  role  in  developing 
countries  with  south-south  trade  outpacing  north-south.  The  poorest  countries,  on  the  other 
hand, face an increasing threat of marginalisation. Lastly, Europe’s immediate neighbourhood 
is undergoing tremendous change with the initiation of democratic transition processes in the 
Southern Mediterranean. 

The  European  Union  has  changed.  The  Lisbon  Treaty  offers  new  scope  to  promote  a 
comprehensive and consistent EU approach. It sets out the overarching principles, objectives 
and  overall  framework  for  EU  external  action  and  also  establishes  the  European  External 
Action  Service  (EEAS),  under  the  authority  of  the  High  Representative  and  Vice  President 
who is tasked with ensuring the consistency of the Union's external action. The EEAS and the 
Commission  co-operate  closely  in  the  delivery  of  the  Union's  external  policies,  both  in 
Headquarters  and  in  EU  Delegations.  The  European  Parliament  was  also  given  additional 
powers, in particular under the budgetary procedure. New Treaty provisions on EU relations 
with enlargement and neighbouring countries, development cooperation, humanitarian aid and 
civil protection should be matched with adequate legal and financial tools.  

The Communication, ‘A Budget for Europe 2020’, adopted by the College on 29 June 2011 
highlighted the areas where the EU can play an important role in a changing and globalising 
world and is clearly based on the Europe 2020 strategy and the new architecture of the Lisbon 
Treaty. In the midst of a global economic crisis, the EU must more than ever seek to target its 

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resources where they are needed most and where they could have the greatest impact and add 
the most value. 

The overall objective for external action under the new MFF will be to ensure that, despite the 
economic  crisis  and  its  budgetary  consequences,  the  EU  is  able  to  speak  with  one  voice,  to 
live up to its ambitions in promoting democracy, peace, solidarity, stability and prosperity and 
poverty  reduction,  both  at  global  level  and  in  our  immediate  neighbourhood,  and  to  help 
safeguard global public goods. These are the guiding principles for the proposals for revised 
external action instruments accompanying this Communication1. 

2. 

WHY SHOULD THE EUROPEAN UNION INVEST IN EXTERNAL RELATIONS? 

2.1 

An interconnected world 

The relative weight of our main partners is increasing, both in economic and political terms, 
making it ever more necessary for the EU to speak with one voice. Events in other parts of the 
world can have direct repercussions on European citizens. Man-made or natural disasters can 
quickly  undermine  stability  across  many  countries.  As  we  have  seen  in  the  context  of  the 
'Arab  Spring',  events  taking  place  in  our  neighbourhood  have  direct  and  immediate 
consequences.  The  EU  has  a  particular  interest  and  responsibility  in  proactively  promoting 
democratisation leading to stability and prosperity in this region.  

Our  societies  are  increasingly  globalised.  Everyday  life  is  shaped  by  global  trends  in 
international  trade  and  investment,  energy,  migration  and  climate  change.  The  planet  has  to 
share limited resources in a sustainable manner and we have to adapt to a changing landscape. 
At  the  same  time,  and  for  the  sake  of  stable  and  fair  international  governance,  we  must 
continue our efforts to help all those who risk being left behind. 

By the same token, EU internal policies can have a direct impact on third countries and can 
often only be fully realised by close co-operation with our international partners. Against this 
backdrop  of  increasing  interdependence  and  in  light  of  its  commitment  to  effective 
multilateralism,  the  EU  has  a  vital  interest  in  actively  participating  in  decision-making 
processes on a global scale, in particular the multilateral fora such as the UN, the WTO and 
the G8 / G20.  

Addressing global challenges such as climate change, biodiversity loss, terrorism, organised 
crime  and  cyber-security  and  trade  imbalances  requires  key  players  to  work  more  tightly 
together. The EU has to adapt to this new reality when pursuing its interests abroad and needs 
to pursue a more coherent and consistent approach in its bilateral and multilateral relations. 
The Union must be equipped to address all developments potentially affecting our citizens, be 
it by seizing opportunities or by anticipating possible risks and threats. 

1 

for  Pre-accession  Assistance,  European  Neighborhood 

Instrument 
Instrument,  Development 
Cooperation instrument, Commission Decision of implementing Council decision on relations between 
the European Union on the one hand and Greenland the Kingdom of Denmark on the other, Partnership 
instrument,  European  Instrument  for  Democracy  and  Human  Rights,  Instrument  for  Stability, 
Instrument  for  Nuclear  Safety  Cooperation.  This  will  also  guide  the  use  of  instruments  related  to 
Humanitarian Aid, Civil Protection and Macro-Financial Assistance. 

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2.2 

EU added value 

In a globalised world, joining forces has become all the more crucial. The EU’s added value is 
evident in a number of areas: 

• 

• 

• 

• 

• 

Resources can be pooled for use on a broad range of policies and instruments. 
All  EU  Member  States  can  benefit  from  the  EU’s  wide  geographical 
representation  in  third  countries  which  provide  a  platform  to  addressing 
specific  challenges,  combining  a  range  of  instruments  and  measures  which 
individual countries are often unable to match. 

Improving our negotiating position and political leverage by increasing overall 
weight  and  representation  on  the  basis  of  well-defined  common  interests  and 
commitments.  Similarly  advancing  multilateral  discussions  and  solutions  on 
matters  of  global  concerns  such  as  climate  change,  environmental  protection 
and energy security. 

Projecting our policies, standards and values on the basis of shared  European 
interests where, starting with enlargement and neighbourhood policies, the EU 
is  best  placed  to  accompany  its  partners  in  their  political  and  economic 
transformation, help them stabilise their economies and align to EU rules and 
standards. 

Implementing  best  practices  that  build  high  international  credibility  in 
promoting  human  rights,  pursuing  democratisation, 
including  electoral 
observation,  and  improving  governance.  Similarly,  maintaining  a  high  degree 
of neutrality and impartiality in delivering humanitarian assistance, and finally, 
exploiting  our  long  experience  in  mobilising  long-term  and  predictable 
development assistance on a global scale. 

Achieving  economies  of  scale  in  delivering  technical  and  financial  assistance 
or  cooperation  activities,  and  providing  diplomatic  and  development  services 
abroad. 

3. 

STRATEGIC OBJECTIVES 

In  line  with  the  June  MFF  Communication,  the  EU’s  external  financial  instruments  will 
pursue the following strategic objectives2: 

• 

• 

Promoting and defending EU values abroad, putting human rights, democracy 
and the rule of law at the core of EU external action, 

Investing in the long-term prosperity and stability of the EU’s neighbourhood 
and  supporting  the  reform  process  in  those  countries  preparing  for  EU 
membership, 

2 

COM(2011) 500 ‘A budget for Europe 2020 — Part II’. 

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• 

• 

• 

• 

• 

Supporting  EU  interests  abroad,  such  as  protecting  EU  citizens,  enhancing 
trade  opportunities,  promoting  EU  norms  and  standards,  ensuring  energy 
security, etc. 

Projecting EU policies to address major global challenges, such as combating 
climate change, reversing biodiversity loss, and protecting global public goods 
and resources. 

Increasing the impact of EU development cooperation, with the primary aim of 
contributing to eradicate poverty, 

Enhancing mechanisms of European solidarity following natural or man-made 
disasters, 

Improving  crisis  prevention  and  resolution  capabilities,  preserving  peace, 
preventing conflict and strengthening international security. 

4. 

UNDERLYING PRINCIPLES 

4.1 

Seizing new opportunities 

The  emphasis  for  the  post-2013  period  will  be  on  adapting  the  EU's  methods  of  designing, 
programming  and  delivering  external  assistance  to  the  new  political,  economic  and 
institutional realities while building on what has proven to be successful so far. 

Addressing short-, mid- and long-term challenges on a variety of issues and mobilising a mix 
of external instruments at EU and Member State level will require particular efforts ensuring 
overall  policy  coherence  in  our  engagement  with  our  partners  in  the  pursuit  of  a 
comprehensive EU approach. The proposed revision of the programming process will ensure 
greater consistency between the different areas of EU external action and a more result-driven 
approach, while allowing flexibility to respond to political priorities.  

The new generation of external instruments will facilitate political dialogue, negotiations and 
implementation of existing and future agreements with our partners in support of an overall 
political  strategy  for  that  country.  In  this  framework,  policy  coherence  for  development 
remains a key priority. At the same time, the EU will strengthen its dialogue and coordination 
with other non-state partners including civil society organisations (including social partners), 
local  authorities,  multilateral  organisations,  international  financial  institutions,  other  donors 
and the private sector. 

4.2 

Maximising impact of scare resources 

The EU must seek to target its resources where they are needed most and where they could 
make the most difference. A more differentiated approach to partnerships and aid allocation 
driven by the country context is a core principle of this proposal. The EU should continue to 
recognise the particular importance of supporting development in its own neighbourhood and 
in  Sub-Saharan  Africa.  On  the  other  hand,  many  countries  are  graduating  from  EU 
development assistance because they are capable of funding their own development. 

Assistance  will  be  allocated  on  the  basis  of  country  needs,  capacities,  commitments, 
performance and potential EU impact. The specific needs of countries in vulnerable, fragile, 

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conflict-affected and crisis situations will be a priority. Differentiation will allow for different 
forms  of  cooperation  such  as  blending  grants  and  loans  from  international  financial 
institutions,  including  the  European  Investment  Bank.  The  increased  use  of  innovative 
financial  instruments  should  mobilise  additional  funding,  including  from  the  private  sector. 
This  will  ensure  maximum  impact  of  EU  spending  in  the  context  of  a  very  tight  budgetary 
situation.  The  EU  will  also  ensure  concentration  of  external  spending,  to  avoid  the 
inefficiencies resulting from sectoral dispersion and aid fragmentation. More focus should be 
placed on investing in the foundations and drivers of inclusive and sustainable growth and on 
supporting  human  rights,  democracy  and  other  key  elements  of  good  governance  including 
the promotion of Gender equality and women's right.  

In a fast-changing world, EU financial instruments have historically been hampered by a lack 
of  flexibility.  The  Instrument  for  Stability  (IfS)  was  created  partly  to  address  this  issue.  In 
order to further increase the EU’s capacity to respond to unforeseen events, new mechanisms 
have  been  introduced  for  revision  of  the  instruments  to  increase  flexibility,  in  particular  by 
earmarking funds for unforeseen needs and defining ad minimum allocations.  

Simplified rules and procedures for programming and delivering EU assistance, including in 
the  context  of  a  revised  Financial  Regulation,  are  proposed  for  all  external  instruments  to 
ensure  more  effective  delivery  of  EU  assistance.  Simplification  should  first  and  foremost 
benefit  partner  countries  and  regions  but  will  also  allow  for  more  efficient  management, 
through the reduction of administrative burden. A horizontal legislative instrument will ensure 
a high degree of harmonisation of financial provisions. 

The EU will  aim for mutual  accountability in allocating and disbursing funds. Overall,  EU 
external  instruments  will  take  greater  account  of  human  rights,  democracy  and  good 
governance  when  it  comes  to  allocating  external  assistance  to  partner  countries.  With 
enlargement and neighbouring countries, country allocations and delivery of assistance should 
be more closely linked to progress in implementing reforms. For developing countries, the EU 
will  strengthen  mutual  accountability  in  respect  of  commitments  and  the  fulfilment  of 
objectives  as  agreed  with  partner  countries.  Indicative  country  allocations  will  be  reviewed 
according  to  changing  conditions  and  the  above-mentioned  criteria.  Humanitarian  aid  will 
remain  based  on  needs  and  on  respect  for  the  principles  of  neutrality,  impartiality  and 
independence. 

In  line  with  the  Lisbon  Treaty  provisions,  the  new  instruments  will  implement  new 
mechanisms to ensure more democratic debate on EU external assistance through a stronger 
involvement of the European Parliament. An example of this is the use of delegated acts3, 
which  can  increase  the  flexibility  of  external  instruments.  Democratic  scrutiny  over  the 
European  Development  Fund  (EDF)  will  also  be  improved  by  bringing  it  into  line  with  the 
Development  Cooperation  Instrument,  while  taking  into  account  the  specificities  of  the 
instrument. 

5. 

A REVISED AND SIMPLIFIED PROGRAMMING PROCESS  

A major innovation in this revision of EU external instruments is in the changes proposed for 
the  programming  process.  The  Lisbon  Treaty  sets  out  a  clear  obligation  for  the  EU  and  its 

3 

Based on Article 290 of the TFEU. 

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Member  States  to  coordinate  their  policies  on  external  action4,  including  development 
cooperation5.  

5.1. 

Agreeing on comprehensive joint EU strategies 

To  achieve  this  goal  and  to  generate  more  impact  and  visibility  in  their  relationships  with 
third  countries,  the  EU  and  Member  States  need  to  have  a  clear  shared  strategy  in  their 
relations  with  a  partner  country  or  region.  In  appropriate  cases,  this  could  mean  drafting  a 
Joint Framework Document (JFD) on the basis of a joint analysis6. A JFD would integrate 
all aspects of EU external action and all EU tools/instruments to achieve an adequate balance 
between  flexibility  and  predictability  as  well  as  between  short-,  medium-  and  long-term 
objectives. The JFD would define strategic lines of action, and a broad policy mix referring to 
the EU and Member States instruments and policies to be used in a country or region taking 
into account diplomatic and political aspects (Common Foreign and Security Policy, political 
dialogue,  democracy  and  human  rights,  etc.),  development  cooperation,  humanitarian  aid, 
security,  and  the  external  projection  of  internal  policies.  As  reflected  in  the  proposed  new 
instruments, where a JFD is prepared for a partner country or region, it would be used for the 
programming  process  and  therefore  no  country  paper  for  such  country  or  region  shall  be 
required.  

5.2. 

Promoting a more flexible and reactive programming process 

The  EU  needs  to  simplify  its  programming  process  to  make  it  more  reactive  to  possible 
changes  in  the  situation  and  make  it  more  flexible  to  facilitate  joint  programming  with 
Member States, which should become the norm for the EU. The programming of funds must 
be based on a clear strategy laid down in strategy papers for each partner country or region 
with a multi-annual allocation beyond a certain level7. Any of the following documents may 
be considered as a strategy paper: 

1.  A  partner  country’s  national  strategy  paper  (National  Development  Plan  or 

similar) recognised by the Commission and the EEAS services; 

2.  A  joint  programming  document  prepared  by  the  EEAS  and  Commission 

services with Member States; 

3.  A Country or Regional Strategy Paper or its equivalent prepared by the EEAS 

and Commission services; 

As  mentioned  above,  the  Joint  Framework  Document  (JFD)  should  also  serve  as  a  strategy 
paper, where there is one. Having one of these papers does not exclude drafting others, but at 
least  one  is  needed  for  programming  EU  funds.  In  the  neighbourhood  region,  for  countries 
that have concluded with the EU an Action plan or an equivalent document, Country Strategy 
Papers will be replaced by Single Support Frameworks. For the Instrument for Pre-accession 
Assistance,  the  new  Country  Strategy  Papers  will  foster  increased  coherence  between  all 
policy areas covered by the instrument. 

4 
5 
6 

7 

Articles 21 and 22 TEU. 
Article 210 TFEU. 
Except for Enlargement countries, where the strategic planning of financial assistance is prepared by the 
Commission, based on the Enlargement Strategy. 
Exact  amount to  be  decided. Provision  is  already  made  in  the draft  DCI  Regulation.  As  regards IPA, 
multi-annual programmes may be adopted irrespective of the amount.  

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On the basis of the strategy paper, the programming of EU funds should, in principle, be laid 
down  in  a  Multi-annual  Indicative  Programme  or  its  equivalent.  EEAS  and  Commission 
services  will  endeavour,  wherever  possible,  to  develop  joint  multi-annual  programming 
documents with the Member States. 

EU funds are programmed in response to the needs and strategies of partner countries and the 
programming period should become, in principle, synchronised with their strategy cycles. The 
EU  programming  cycle  may  vary  from  one  country  to  the  next,  and  the  amount  of  funds 
programmed  upfront  may  therefore  not  cover  all  the  2014-2020  cycle  nor  all  the  country 
indicative allocations. 

A higher degree of flexibility is essential for states in fragile, crisis and post-crisis, including 
conflict affected, situations allowing EU assistance to be swiftly (re)programmed in line with 
the  JFD  or  Country  Strategy  Paper  and/or  any  EU  strategies  on  conflict  prevention,  crisis 
response/management  and  peace-building.  This  should  provide  the  necessary  mix  of 
approaches  and  instruments  in  particular  by  ensuring  an  appropriate  balance  between  the 
security-oriented,  development  and  humanitarian  approaches,  and  by  seamlessly  linking  the 
short-term response with the long term support.  

The  (re)programming  process  should  mainly  focus  on  key  areas  like  governance,  re-
establishing  social  service  delivery  and  livelihoods,  peace  and  state  building  and  address 
identified  root  causes  for  fragility  or  (risk  of  renewed)  conflict,  as  well  as  vulnerability  to 
disasters. The process of adoption or adjustment of the Multi-annual Indicative Programmes 
should be shortened, given the speed at which political situations often evolve. Programming 
documents will be reviewed if and when needed. 

6. 

PROPOSED STRUCTURE FOR THE NEW HEADING ON EXTERNAL ACTION 

6.1 

Cooperation with partner countries 

The  European  Union  will  focus  its  work  with  its  external  partners  on  four  broad  policy 
priorities  in  direct  application  of  the  Treaty:  enlargement,  neighbourhood,  cooperation  with 
strategic partners and development cooperation. 

The  Instrument  for  Pre-accession  Assistance  (IPA)  will  remain  the  financial  pillar  of  the 
Enlargement Strategy, encompassing all aspects of internal policies and thematic issues. The 
aim will be to ensure that candidate countries and potential candidates are fully prepared for 
possible  accession  by  encouraging  them  to  adapt  emerging  EU  strategies  and  policies  into 
their  national  priorities.  Emphasis  will  be  placed  on  support  for  political  reforms,  notably 
strengthening the democratic institutions and the rule of law and promotion of human rights 
and fundamental freedoms, socio-economic development, regional cooperation, adopting and 
implementing the acquis, EU 2020 objectives, and preparing to manage internal policies upon 
eventual  accession.  The  coherence  between  the  financial  support  and  the  overall  progress 
made in the implementation of the pre-accession strategy will be strengthened. 

The  European  Neighbourhood  Instrument  (ENI)  will  benefit  the  EU’s  neighbouring 
countries  supporting  deeper  political  cooperation,  closer  economic  integration  with  the  EU 
and  an  effective  and  sustainable  transition  to  democracy.  Cooperation  with  the  EU’s 
neighbours  will  be  based  on  the  ‘more  for  more’  principle,  as  proposed  in  the  Joint 

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Communication of the High Representative of the EU for Foreign Affairs and Security Policy 
and the European Commission ‘A new response to a changing Neighbourhood’8. 

The  Development  Cooperation  Instrument  (DCI)  will  focus  on  combating  poverty.  It  will 
also  contribute  to  the  achievement  of  other  objectives  of  EU  external  action,  in  particular 
fostering sustainable economic, social and environmental development as well as promoting 
democracy,  the  rule  of  law,  good  governance  and  respect  for  human  rights.  It  will  be 
organised around: 

i) 

ii) 

Geographic  programmes  to  support  bilateral  and  regional  cooperation  with 
developing  countries  that  are  not  covered  by  the  ENI,  IPA  or  the  European 
Development  Fund.  Given  the  need  to  address  partner  countries'  needs  and 
priorities  and  secure  their  engagement,  in  line  with  the  international 
commitments  on  Aid  Effectiveness,  geographic  programmes  will  continue  to 
be the dominant focus of the DCI. 

Streamlined thematic programmes with enhanced flexibility to allow for swift 
responses  to  new  global  challenges.  The  ‘programme  for  global  public  goods 
and  challenges’  will  target  the  main  global  public  goods  and  challenges, 
notably  climate  change,  environment,  energy,  human  development,  food 
security  and  sustainable  agriculture,  and  migration  while  ensuring  coherence 
with the poverty reduction objective. No less than 25 % of this programme will 
be spent on climate change and environment objectives to reach the objective 
of  the  Europe  2020  strategy.  At  least  20%  of  the  global  public  goods  and 
challenges  programme  will  support  social  inclusion  and  human  development 
and notably key priorities such as basic health and education. The ‘civil society 
organisations  and  local  authorities  programme’  will  aim  to  empower  these 
actors to get involved in development strategies and processes. iii)  The 
Pan-
African programme in the DCI will support the implementation of the Africa-
EU  Strategic  Partnership  in  complementarity  with  other  instruments  for 
cooperation with African countries and regions. 

Due consideration will be given to coherence and consistency of EU's overall policy through 
reinforcing  the  mainstreaming  of  the  external  dimension  of  internal  EU  policies  within  the 
DCI and its programming, taking into account the needs and priorities of partner countries in 
line with the principles of aid effectiveness. 

Links between humanitarian relief and development aid will be better addressed through the 
differentiation concept with a priority given to countries facing transition challenges in terms 
of funds allocation. Specific modalities for programming and flexibility for countries in crisis 
or post-crisis situations should promote better coordination between  relief rehabilitation  and 
development.  In  this  light,  the  possibility  of  keeping  unallocated  funds  would  allow 
mobilisation of funds to address transition challenges through amendment to the Multi-annual 
Indicative Programmes. 

Cooperation with African, Caribbean and Pacific countries will mostly continue to be funded 
outside  the  Budget,  under  the  eleventh  European  Development  Fund  (EDF).  Cooperation 
with  overseas  countries  and  territories  will  also  be  covered  by  the  EDF.  The  differences  in 

8 

COM(2011) 303. 

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Member States’ contribution keys to the 11th EDF should be brought closer to the general EU 
budget contribution keys in order to facilitate the integration of the EDF in the EU budget at a 
later stage. 

The  EU-Greenland  partnership  aims  to  preserve  the  close  links  between  them,  while 
supporting  sustainable  development  in  Greenland  society.  This  partnership  should  be 
reinforce and include areas such as raw materials, given their significant economic potential 
in that country. 

The new Partnership Instrument (PI) will advance and promote EU and mutual interests and 
give  the  Europe  2020  strategy  a  global  reach.  It  replaces  the  Industrialised  Countries 
Instrument  and  will  allow  the  EU  to  respond  in  an  effective  and  flexible  manner  to 
cooperation  objectives  arising  from  our  relations  with  partner  countries  and  by  addressing 
challenges  of  global  concern.  Although  there  will  be  a  focus  on  strategic  partners  and 
emerging economies, the instrument will remain global in scope. It could also underpin new 
relationships with countries graduating from bilateral development cooperation. There will be 
no  mandatory  classification  of  expenditure  as  Official  Development  Aid  although  this  will 
remain  possible.  The  Partnership  Instrument  could  also  contribute  to  EU  climate  and 
biodiversity  but there will be no ex ante earmarking of funds. 

Future external instruments should also enable the EU and its Member States to increase their 
impact in the political and economic partnerships they are engaged in and to comply with the 
commitments  made  in  different  fora.  The  EU  has,  for  instance,  the  ambition  to  allocate  at 
least  20%  of  its  budget  to  contribute  to  a  low-carbon  and  climate-resilient  society  and  to 
mainstream action on climate and biodiversity throughout its external instruments. 

Moreover,  in  addition  to  the  financial  envelope  of  "Erasmus  for  All"  programme  under 
Heading  1 of  the  EU budget, and in order  to promote  the  international  dimension  of  higher 
education,  an  indicative  amount  of  EUR  1  812  100  000  from  the  different  external  action 
instruments  (Development  Cooperation  Instrument,  European  Neighbourhood  Instrument, 
the  European 
Instrument  for  Pre-accession  Assistance,  Partnership  Instrument  and 
Development Fund), will  be allocated,  in line with  EU external action objectives  defined in 
Article 21 of the TEU, to actions of learning mobility and to cooperation and policy dialogue 
with authorities/institutions/organisations of the countries eligible under these external action 
instruments.. 

6.2 

Promoting democracy and human rights globally 

Boosting the European Instrument for Democracy and Human Rights (EIDHR) will enable 
the  EU  to  provide  more  support  for  the  development  of  thriving  civil  societies  and  their 
specific role as key actors for positive change in support of human rights and democracy. This 
will include increasing the EU’s capacity to react promptly to human rights emergencies and 
more support for international and regional human rights protection mechanisms. Support will 
also  be  given 
their 
recommendations and improving democratic and electoral processes. 

to  carrying  out  electoral  observation  missions,  following  up 

6.3 

Crisis prevention and management 

The Instrument for Stability (IfS) will be increased to reflect a more challenging international 
context.  The  non-programmable  capacity  will  address  crisis  situations,  including  natural 
disasters. The programmable capacity will focus on capacity building for crisis preparedness 

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and on addressing global and trans-regional threats such as terrorism, organised crimes, illicit 
trafficking, protecting critical infrastructure and public health and mitigating risks related to 
chemical,  biological,  radiological,  and  nuclear  materials.  It  will  also  support  measures  to 
ensure  that  the  specific  needs  of  women  and  children  in  crisis  and  conflict  situations, 
including their exposure to gender-based violence, are adequately met. 

The  Instrument  for  Nuclear  Safety  Cooperation  (INSC)  will  continue  to  aim  at  promoting 
high levels of nuclear safety, radiation protection and the application of efficient and effective 
safeguards  of  nuclear  material  in  third  countries,  in  particular  in  neighbouring  countries,  in 
support of international conventions and standards. 

6.4 

Other financial instruments for external action 

One of the other external instruments the EU has at its disposal is Macro-Financial Assistance 
to  third  countries.  This  instrument  is  used  in  exceptional  circumstances  to  grant  financial 
assistance of a macroeconomic nature to address temporary balance of payments difficulties. 
IMF  participation  is  a  precondition  and  its  use  is  primarily  focussed  on  the  EU 
neighbourhood. Any decision to grand MFA will be consistent with the EU's external action 
priorities. 

Although not detailed above, instruments such as Humanitarian Aid and Civil Protection will 
continue to be funded under the "Global Europe" heading of the MFF 2014-2020. 

In addition, the Common Foreign and Security Policy budget will continue to support action 
without military and defence implications. 

7. 

COHERENCE BETWEEN INSTRUMENTS 

Different  instruments  of  EU  external  policy  action  will  continue  to  be  implemented  in  the 
same  country  as  has  been  the  case  in  the  past.  For  those  emerging  economies  who  will 
graduate  from  bilateral  development  cooperation,  such  as  Brazil,  China  and  India,  different 
partnerships  should  be  established  using  the  various  instruments  available  to  them  beyond 
bilateral  development  cooperation.  These  could  include  regional  development  cooperation 
and  thematic  programmes  under  the  Development  Cooperation  Instrument,  European 
Instrument  for  Democracy  and  Human  Rights,  Instrument  for  Stability,  Partnership 
Instrument, external components of internal instruments.... In line with new Treaty, the EEAS 
and  the  Commission  services  will  place  a  particular  emphasis  on  coherence  in  the  mix  of 
different policies and instruments during their programming phase. 

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