JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Review of the European Neighbourhood Policy
Date: 2015-11-18
Institutions: European Commission, European External Action Service
Subjects: EU employment policy, EU financial instrument, EU migration policy, EU regional policy, European neighbourhood policy, European security, climate change policy, economic growth, energy policy, human rights, rule of law, the EU's international role, transport policy

EUROPEAN 
COMMISSION 

HIGH REPRESENTATIVE
OF THE UNION FOR
FOREIGN AFFAIRS AND
SECURITY POLICY

Brussels, 18.11.2015  
JOIN(2015) 50 final 

JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, 
THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

Review of the European Neighbourhood Policy 

{SWD(2015) 500 final} 

EN 

   EN 

 
 
 
 
  
 
I. INTRODUCTION 

The  European  Neighbourhood  Policy  (ENP)  was  launched  in  2004,  to  help  the  EU  support 
and  foster  stability,  security  and  prosperity  in  the  countries  closest  to  its  borders.  The  EU 
remains committed to these goals, but events of recent years have demonstrated the need for a 
new approach, a re-prioritisation and an introduction of new ways of working. 

In the past 12 years, there have been radical changes in a large number of the countries that 
surround  the  EU.  There  have  been  some  positive  developments:  local  actors  took  action  to 
initiate  reforms  to  obtain  rule  of  law,  social  justice,  and  increased  accountability,  as 
exemplified  by  the  Nobel  Peace  Prize  awarded  to  the  Tunisian  Quartet.  At  the  same  time, 
conflict,  rising  extremism  and  terrorism,  human  rights  violations  and  other  challenges  to 
international law,  and economic upheaval have  resulted in major refugee flows.  These  have 
left  their  marks  across  North  Africa  and  the  Middle  East,  with  the  aftermath  of  the  Arab 
Uprisings and the rise of ISIL/Da'esh. In the East, an increasingly  assertive Russian foreign 
policy  has  resulted  in  the  violation  of  Ukrainian  sovereignty,  independence  and  territorial 
integrity. Protracted conflicts continue to hamper development in the region. 

In the meantime, the EU's own interdependence with its neighbours has been placed in sharp 
focus.  Growing numbers of refugees are arriving at the European Union's borders hoping to 
find a safer future. Energy crises have underlined the EU's need to work with neighbours on 
energy security, including diversification of energy sources, routes and suppliers. There have 
been acts of terror affecting the EU and the neighbourhood, most recently the heinous terrorist 
attacks in Paris on 13th November. 

The purpose of the current review of the ENP is to propose how the EU and its neighbours 
can build more effective partnerships in the neighbourhood. In doing so, the EU will pursue 
its interests which include the promotion of universal values. The EU's own stability is built 
on  democracy,  human  rights  and  the  rule  of  law  and  economic  openness  and  the  new  ENP 
will take stabilisation as its main political priority in this mandate. 

Differentiation  and  greater  mutual  ownership  will  be  the  hallmark  of  the  new  ENP, 
recognising that not all partners aspire to EU rules and standards, and reflecting the wishes of 
each country concerning the nature and focus of its partnership with the EU. 

The  EU  cannot  alone  solve  the  many  challenges  of  the  region,  and  there  are  limits  to  its 
leverage,  but  the  new  ENP  will  play  its  part  in  helping  to  create  the  conditions  for  positive 
development. 

The review, proposed by President Juncker and requested by EU Member States, has brought 
over 250 responses to the public consultation from Member States, partner governments, EU 
institutions,  international  organisations,  social  partners,  civil  society,  business,  think  tanks, 
academia and members of the public, which largely confirm the need for change in the ENP 
both in substance and in methodology. 

The public consultation has demonstrated that while the offer of a closer relationship with the 
EU for those countries which have undertaken governance reforms has encouraged change in 
some  countries,  current  practice  and  policy  has  been  regarded  by  other  partners  as  too 

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prescriptive,  and  as  not  sufficiently  reflecting  their  respective  aspirations.  The  consultation 
has  further  indicated  that  ownership  by  both  partners  and  EU  Member  States  needs  to  be 
stepped up; that cooperation should be given a tighter, more relevant focus; and that greater 
flexibility must be sought to enable the EU and its partners to respond to ever changing needs 
and circumstances. 

More effective ways will be sought to promote democratic, accountable and good governance, 
as well as to promote justice reform, where there is a shared commitment to the rule of law, 
and fundamental rights. Open  markets  and growth,  inclusive  economic development, and in 
particular  the  prospects  for  youth,  is  highlighted  as  a  key  to  stabilising  societies  in  the 
neighbourhood. There will be greater attention to the energy security and climate action both 
of the EU and of the partners themselves. 

There will be a new focus on stepping up work with our partners on security sector reform, 
conflict prevention, counter-terrorism and anti-radicalisation policies, in full compliance with 
international  human  rights  law.  More  than  ever  after  the  November  13th  terrorist  attacks  in 
Paris,  intensified  cooperation  with  our  neighbours  is  needed  in  these  areas.  Safe  and  legal 
mobility and tackling irregular migration, human trafficking and smuggling are also priorities.  

The new ENP will seek to deploy the available instruments and resources in a more coherent 
and  flexible  manner.  Additionally,  it  will  be  important  to  seek  a  deeper  involvement  of  EU 
Member States in re-energising work with our neighbours. Equally, the aim will be a deeper 
engagement with civil society and social partners. 

On  a  regional  level,  the  Eastern  Partnership  will  be  further  strengthened  in  line  with 
commitments  at  the  Riga  Summit  in  2015.  The  Union  for  the  Mediterranean  can  play  an 
enhanced  role  in  supporting  cooperation  between  southern  neighbours.  The  new  ENP  will 
now seek to involve other regional actors, beyond the neighbourhood, where appropriate, in 
addressing regional challenges.  

The adoption by the UN General Assembly of the 2030 Agenda for Sustainable Development 
and  its  Sustainable  Development  Goals  (SDGs)  and  the  EU’s  strong  support  for  its 
implementation have provided a new transformative political framework in which to engage 
with  partners.  Furthermore,  this  review  is  being  closely  coordinated  as  part  of  the  broader 
work on the EU Global Strategy on Foreign and Security Policy. 

With  these  and  other  measures,  the  EU  will  seek  to  reinforce  the  ENP  as  a  framework  for 
relations with all partners in the future. 

II. STABILISING THE NEIGHBOURHOOD 

The  ENP  is  a  long-term  engagement  with  the  EU’s  neighbours,  but  it  also  needs  to  take 
account of the most pressing needs. In the next three to five years, the most urgent challenge 
in many parts of the neighbourhood is stabilisation. The causes of instability often lie outside 
the security domain alone. The EU's approach will seek to comprehensively address sources 
of  instability  across  sectors.  Poverty,  inequality,  a  perceived  sense  of  injustice,  corruption, 
weak  economic  and  social  development  and  lack  of  opportunity,  particularly  for  young 

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people,  can  be  roots  of  instability,  increasing  vulnerability  to  radicalisation.  The  new  ENP 
will  make  a  determined  effort  to  support  economies  and  improve  prospects  for  the  local 
population. The policy should help make partner countries places where people want to build 
their future, and help tackle uncontrolled movement of people. 

During  the  public  consultation,  a  large  number  of  stakeholders  including  many  partner 
countries  also  strongly  expressed  the  view  that  the  EU  should  increase  its  engagement  with 
partners  in  the  security  sector.  As  in  other  areas,  the  revised  ENP  will  offer  a  tailor-made 
approach to cooperating on security-related matters, and will actively ensure that our overall 
engagement  is  conflict-sensitive,  and  fully  compliant  with  international  law,  including 
international  human  rights  law.  The  new  ENP  aims  to  work  on  conflict  prevention  through 
early warning, coupled with early preventive measures, and enhance partners' capacity in this 
regard. The measures set out in this Joint Communication seek to offer ways to strengthen the 
resilience of the EU’s partners in the face of external pressures and their ability to make their 
own sovereign choices. 

III. STRONGER NEIGHBOURHOOD, STRONGER PARTNERSHIPS 

The  consultation  asked  far-reaching  questions  about  whether  and  in  what  form  the  ENP 
should continue. There is consensus that: 

*Our partners have different aspirations: our relations should reflect this more fully 
*The ENP should reflect EU interests and the interests of our partners 
*Partnerships should be more focused on fewer priorities 
*There should be greater involvement of Member States in the ENP 
*Ownership by the partners should be enhanced 

Most  interlocutors  in  the  consultation  on  the  ENP  wished  to  see  some  form  of  a  common 
policy  framework  for  the  Eastern  and  Southern  neighbourhood.  However  there  was  a  clear 
demand for change, with more tailor-made, more differentiated partnerships between the EU 
and each of its neighbouring partners to reflect different ambitions, abilities and interests. 

Where a partner wishes to pursue deeper relations with the EU based on shared values, work 
will  develop  on  the  existing  basis.  Georgia,  the  Republic  of  Moldova,  and  Ukraine  have 
chosen  the  path  of  political  association  and  economic  integration  with  the  EU  through  new 
generation  Association  Agreements/Deep  and  Comprehensive  Free  Trade  Areas 
(AA/DCFTA);  Morocco  benefits  from  an  advanced  status  in  its  relations  with  the  EU  and 
Tunisia has a privileged partnership. The EU will work with those partners to further develop 
their relations and to maximise the benefits for both parties to those agreements. To underpin 
these  partnerships,  the  EU  should  increase  opportunities  for  political  dialogue  at  ministerial 
level with these partners. 

The EU proposes to start a new phase of engagement with partners in 2016, consulting on the 
future  nature  and  focus  of  the  partnership.  The  expectation  is  that  different  patterns  of 
relations will emerge, allowing a greater sense of ownership by both sides. The EU is ready to 
discuss  the  possibility  to  jointly  set  new  partnership  priorities,  which  would  focus  each 
relationship more clearly on commonly identified shared interests.  

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The incentive-based approach ("More for More") has been successful in supporting reforms in 
the fields of good governance, democracy, the rule of law and human rights, where there is a 
commitment  by  partners  to  such  reforms.  However,  it  has  not  proven  a  sufficiently  strong 
incentive  to  create  a  commitment  to  reform,  where  there  is  not  the  political  will.  In  these 
cases, the EU will explore more effective ways to make its case for fundamental reforms with 
partners, including through engagement with civil, economic and social actors. 

There  will  no  longer  be  a  single  set  of  progress  reports  on  all  countries  simultaneously. 
Instead  the  EU  will  seek  to  develop  a  new  style  of  assessment,  focusing  specifically  on 
meeting the goals agreed with partners. These reports will be timed to provide the basis for a 
political exchange of views in the relevant high-level meetings with partner countries, such as 
Association/Cooperation Councils. For those partners who prefer to focus on a more limited 
number  of  strategic  priorities,  the  reporting  framework  will  be  adjusted  to  reflect  the  new 
focus. In addition to the country-specific reporting, regular reports will track developments in 
the neighbourhood. These reports will contain the elements required under the Regulation on 
the  European  Neighbourhood  Instrument,  including  information  on  fundamental  freedoms, 
the rule of law, gender equality and human rights issues. 

The  new  ENP  should  be  the  focus  for  a  more  coherent  effort  by  the  EU  and  the  Member 
States. The EU is more influential when united in a common approach and communicating a 
single  message.  It  offers  partners  more  when  using  its  resources  in  a  strategic  and  well-
coordinated way. Therefore, alongside discussions with partners, there will be a greater role 
for  the  Council  and  Member  States  in  identifying  priorities  and  in  supporting  their 
implementation. This will include joint programming. Member States will be invited to play 
the role of lead partner for certain initiatives or to accompany certain reform efforts. 

The  Commission  and  the  High  Representative  will  keep  the  European  Parliament,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions  informed 
regularly about the implementation of the new ENP. 

IV.  GOOD  GOVERNANCE,  DEMOCRACY,  RULE  OF  LAW,  AND  HUMAN 
RIGHTS 

The  consultation  confirmed  the  very  strongly  held  view  that  the  EU  should  uphold  and 
promote  universal  values  through  the  ENP.  It  equally  confirmed  that  the  methods  used 
currently are regarded by some as ineffective and by others as obstacles to equal partnership. 

*The  EU  is  committed  to  promoting  good  governance,  democracy,  rule  of  law  and  human 
rights 
*The  ENP  will  seek  more  effective  ways  to  promote  reforms  with  each  partner  in  mutually 
agreed formats 
*The ENP will do more to support civil society 

Ensuring the rule of law and independent and effective justice systems will remain priorities 
for  the  EU.  They  are  crucial  to  social  and  economic  stability,  to  create  trust  in  state 
institutions and to provide legal certainty. An independent, transparent and impartial judicial 
system  free  from  political  influence  which  guarantees  equal  access  to  justice,  protection  of 

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human  rights,  gender  equality  and  non-discrimination,  and  full  application  of  the  law  will 
continue  to  be  a  goal  of  the  EU  with  all  its  partners.  Accountable  public  administration  at 
central  and  local  government  level  is  key  to  democratic  governance  and  economic 
development. Therefore public administration reform is essential. This includes strengthening 
democratic  and 
local  and  regional  authorities; 
depoliticising  the  civil  service,  developing  eGovernment  and  increasing  institutional 
transparency and accountability. The EU will also support work to improve partner's capacity 
in policy development, service delivery and management of public finances, and support the 
work of national parliaments. 

institutions;  developing 

independent 

Effective anti-corruption measures, mostly on the preventive side, should be implemented in 
relation to large-scale public procurement, (re)privatisations, reform of state-owned/controlled 
companies  or  similar  areas  where  vulnerabilities  to  corruption  are  high,  including  by 
supporting the key role of civil society. 

The EU will continue to work with partner governments, civil society and citizens on human 
rights and democracy related issues, including electoral processes, as laid down in the Treaty 
on  European  Union  and  the  EU’s  Action  Plan  on  Human  Rights  and  Democracy.  We  will 
promote and defend the universality and indivisibility of all human rights both at home and in 
partnerships with countries from all regions. 

The EU will engage with all partners in an inclusive dialogue on human rights and democracy 
issues,  including  on  areas  where  experiences  may  differ.  Human  rights  and  democracy  will 
continue to be an agenda item in our political dialogue with  all partners in mutually agreed 
formats. Support will be provided to civil society fora. 

Particular  attention  will  be  paid  to  implementing  the  EU  Gender  Action  Plan  2016-20201, 
which should inform ENI programming, and to supporting ENP partners in delivering on their 
commitments to gender equality and girls' and women's empowerment, in line also with the 
universal 2030 Agenda. Emphasis will be given to ensuring girl's and women's physical and 
psychological  integrity,  promoting  the  social  and  economic  rights  and  empowerment  of 
women  and  girls,  their  access  to  justice,  education,  health  care  and  other  social  services, 
strengthening  their  voice  and  political  participation  and  shifting  the  institutional  culture  to 
deliver on these commitments. 

The EU will look to support citizens’ ability to hold governments accountable and will work 
to improve the pluralism, independence, and professionalism of the local media, helping it to 
act as a forum for public debate and as the catalyst for change in partner countries. An open 
and free internet should also be promoted. 

Sub-national,  national  and  intra-regional  civil  society  should  be  supported  further,  both 
through direct means and through facilitating other organisations’ involvement. The European 
Endowment for Democracy can play an important role in this regard. The EU should support 
developing the capacities of civil society professionals and leadership in the neighbourhood, 

1 13201/15 Council Conclusions 26 October 2015 

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using programmes such as Civil Society fellowships, recognising the important role of young 
people in that regard. 

In many neighbourhood countries ethnic, religious and cultural identities and traditions play a 
crucial role as regards the way society functions. During the public consultation, stakeholders 
referred  to  these  factors  and  asked  the  EU  to  allow  more  co-ownership.  The  EU  should 
therefore expand outreach to relevant members of civil society in its broadest sense as well as 
social partners. 

V. PROPOSED JOINT PRIORITIES FOR COOPERATION 

V.1 ECONOMIC DEVELOPMENT FOR STABILISATION 

Partners responding to the consultation signalled strongly their interest in the EU as a partner 
for economic development and modernisation, investment and for developing the employment 
options  for  youth.  This  is  linked  to  the  continuing  strong  interest  in  mobility  and  the 
possibility to travel to and work in the EU. 

Economic and social development should be at the heart of the EU's contribution to stabilising 
the neighbourhood and building partnerships. 

Enhancing  economic  governance,  strengthening  fiscal  stability  and  supporting  structural 
reforms for improved competitiveness and inclusive growth and social development, are keys 
to developing a country's economic resilience. Macroeconomic stability and economic reform 
in  the  neighbourhood  are  a  priority  and  the  EU  will  continue  to  provide  support  notably 
through  Macro-Financial  Assistance  operations.  The  EU  should  promote  capacity  building 
and new opportunities for training to help develop a new generation of public administrators 
capable  of  delivering  effective  and  inclusive  economic  management  and  sustainable  social 
outcomes.  The modernisation of the economy, fostering innovation, the creation of jobs and 
boosting skills and promoting economic, social and territorial cohesion are other key aspects. 

Some  new,  but  also  many  existing  instruments  can  be  deployed  more  effectively  to  help 
create  better  conditions  for  jobs  and  growth.  The  EU  should  step  up  cooperation  with  the 
International  Financial  Institutions  (IFIs),  notably  the  European  Investment  Bank  (EIB),  the 
European  Bank  for  Reconstruction  and  Development  (EBRD),  the  World  Bank  and  the 
International Monetary Fund (IMF) and relevant international organisations on private sector 
development  and  initiatives  that  promote  inclusive  growth  and  employment  and  improve 
living  conditions  for  citizens.  In  addition  actions  to  strengthen  partnerships  with  the  private 
sector should be promoted, and the use of innovative approaches such as blending grants and 
loans as an important way of leveraging additional resources and increasing the impact of EU 
aid should be boosted. 

TRADE  

The consultation showed that market access remains key, but reflected a feeling that greater 
flexibility is needed on trade agreements 
*Aim for creation of an economic area with those who enter DCFTA 
*Lighter, more flexible trade agreements for those who do not 

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A key instrument in promoting prosperity in the ENP so far has been granting access to the 
EU market. Some neighbours have chosen a path of close economic integration with the EU. 
Three  agreements  on  a  Deep  and  Comprehensive  Free  Trade  Area  (DCFTA)  have  been 
concluded with Eastern partners (with Ukraine, the Republic of Moldova and Georgia) as part 
of  Association  Agreements  (AAs).  In  the  Southern  neighbourhood,  one  DCFTA  is  under 
negotiation (with Morocco), while negotiations with Tunisia have just been launched. The EU 
will  support  the  on-going  negotiations  with  Southern  Mediterranean  partners,  including 
through a differentiated, progressive and asymmetric approach based on mutual priorities. The 
EU  will  support  the  neighbours'  domestic  reforms  conducive  to  the  implementation  of 
AA/DCFTAs and other bilateral agreements. 

Full  and  effective  implementation  of  these  agreements  is  a  key  priority  for  the  AA/DCFTA 
partners. It will foster reforms and sustainable growth. As set out at the Eastern Partnership 
summits  in  Vilnius  in  2013  and  Riga  in  2015,  the  implementation  of  AA/DCFTAs, 
accompanied  by  reforms,  will  result  in  the  partners'  comprehensive  approximation  with 
international  standards  and  EU  legislation  and  standards.  This  will  lead  to  the  gradual 
economic integration of partners in the EU internal market and therefore to the creation of an 
economic area. Such an ambitious long-term vision for economic integration between partners 
concerned and the EU is desirable. It will also contribute to the long-term goal of a wider area 
of  economic  prosperity  based  on  World  Trade  Organisation  (WTO)  rules  and  sovereign 
choices throughout Europe and beyond. 

However, a number of partners do not currently wish to pursue such a model. For those who 
do  not  wish  to  engage  in  negotiations  for  a  DCFTA,  we  will  seek  to  jointly  determine 
attractive and realistic alternatives to promote integration and strengthen trade and investment 
relations that reflect mutual interests. The EU will offer more flexibility where possible, with 
lighter  options,  going  beyond  existing  preferential  or  non-preferential  trade  agreements  for 
those who choose not to engage across all sectors at the outset. 

As  an  example,  the  possibility  to  sign  Agreements  on  Conformity  Assessment  and 
Acceptance (ACAAs), which allow free movement of industrial products in specific sectors, 
is foreseen in the AA/DCFTAs. ACAAs might also be suitable for other ENP countries whose 
current contractual relationship with the EU envisages approximation in the area of technical 
regulations, standards and conformity assessment. 

The EU remains committed to encouraging trade between the EU, ENP partner countries and 
their trading partners. 

ECONOMIC MODERNISATION AND ENTREPRENEURSHIP 

*Support reforms that lead to better business and investor environment  
*Support growth through support to SMEs  
*Support growth through modernisation of existing sectors and diversification into new ones 

The EU will support partners to modernise their economies for smart and sustainable growth 
by engaging in economic dialogue, policy advice and the mobilisation of financial assistance. 
It will promote a better business environment and reforms that allow greater investment, and 
more  and  better  jobs.  It  will  also  focus  on  supporting  the  small  and  medium  enterprises 

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(SME) sector which is a primary creator of employment (and is already supported under the 
DCFTA facility, notably by working to improve access to finance and information. Reforms 
to underpin economic and social development (such as skills development, social protection, 
education, water and health) should be encouraged and supported. 

Research,  science  and  innovation  are  crucial  to  create  decent  and  sustainable  jobs  in  the 
neighbourhood so the modernisation and diversification of economies should be encouraged 
by  facilitating  increased  participation  of  neighbourhood  countries  in  EU  initiatives,  such  as 
the  Enterprise  Europe  Network,  Horizon  2020  and  COSME  EU  programmes,  connection  to 
GÉANT  and  by  promoting  the  concept  of  ‘smart  specialisation’  as  developed  in  the  EU’s 
regional  policy  for  the  design  of  research  and  innovation  strategies.  The  development  of  a 
Common  Knowledge  and  Innovation  Space  between  the  EU  and  its  Eastern  and  Southern 
neighbours should be fostered, using scientific evidence to create knowledge-based jobs and 
attract  investors  to  innovative  businesses  in  the  EU  and  the  neighbourhood.  The  EU  will 
continue  to  align  and  integrate  joint  research  and  innovation  priorities  through  joint 
programmes such as the Partnership for Research and Innovation in the Mediterranean Area 
(PRIMA) and neighbours` association to Horizon 2020. 

Agriculture is a major source of jobs in many partner countries and the EU should continue to 
support sustainable and inclusive policies and investment in modernisation of the sector, and 
diversification to other income creating activities in rural areas where necessary. The EU will 
support  a  resource-efficient  economy  by  addressing  environmental  challenges  such  as 
degradation of and competition for natural resources. Similarly, the EU should also contribute 
to developing maritime economies, while working together towards a common vision for the 
sustainable use of shared seas. 

Support for the digital economy should be stepped up, to harmonise the digital environments 
between the EU and its neighbours. This will create jobs, growth and innovation, particularly 
benefiting the young in terms of opportunities for education and employment, locally or at a 
distance, and for starting up low initial capital businesses. 

EMPLOYMENT AND EMPLOYABILITY: FOCUS ON YOUTH 

*Focus on jobs and skills, particularly of the young 
*Step up support for Erasmus + 
*New emphasis on Vocational Training 
*New incentives for brain circulation 

The EU can help improve the employability of the local workforce, and help to focus efforts 
on  the  development  of  skills  and  competences  and  creation  of  opportunities  particularly  for 
young men and women. This should range from support for fostering out-of-school education 
('non-formal learning') to facilitating access to primary and secondary education, and fighting 
illiteracy, to ensuring the development of skills, apprenticeships and work-based training. The 
EU  will  significantly  step  up  the  scope  for  engagement  of  neighbourhood  partners  in 
Erasmus +,  including  a  higher  level  of  funding.  Particular  attention  should  also  be  paid  to 
facilitate the participation in Erasmus + of higher education institutions from conflict regions. 

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The EU will foster mobility in vocational education and training, in order to be able to give 
greater  support  in  this  crucial  area.  The  EU  will  also  support  the  mobility  of  European  and 
neighbouring countries' trainees seeking to have a work experience abroad.  

The  EU  will  consult  partners  on  the  establishment  of  a  panel  on  youth  employment  and 
employability  within  the  Eastern  Partnership.  The  EU  will  also  encourage  exchanges  on 
education, training and youth policies between the Southern Mediterranean countries  within 
existing  fora  for  cooperation  in  the  region.  The  EU  will  invite  the  European  Training 
Foundation to play an active role in this context.  

The  EU  will  support  policies  towards  matching  skills  and  labour  market  needs,  improving 
academia-industry  collaboration  and  development  of  students`  employability  skills  for 
knowledge-based  and  sustainable  jobs  and  will  promote  incentive  schemes  for  people  who 
have studied or acquired skills in the EU to return to their home country.  

PARTNERSHIPS FOR GROWTH 

*Develop partnerships to support investment and economic modernisation 
*Greater involvement of the private sector to boost investment and reform 
*New  alliances  of  private  sector,  EU,  Member  States  and  IFIs  supporting  strategies  for 
growth, jobs or youth 

With  those  neighbours  who  wish,  the  EU  will  develop  cross-cutting  partnerships  to  support 
growth, employment and economic modernisation. This will bring together public and private 
sector,  EU  and  interested  Member  States,  IFIs  and  other  partners  that  can  help  the  country 
develop in line with a Smart Specialisation strategy. 

In  particular,  the  EU  will  encourage  entrepreneurs  to  engage  directly  with  partners  in  the 
Neighbourhood. Economic diplomacy missions to ENP partners need to be undertaken more 
systematically  mobilising  European  business  more  effectively  to  promote  trade  and 
investment  in  the  Neighbourhood.  In  addition  such  missions  will  be  used  to  provide 
neighbours  with  appropriate  partners  to  lend  hands-on  support  on  particular  economic 
development  challenges,  including  strengthening  their  skills  base,  entrepreneurship,  and 
diversifying their economic activity. 

TRANSPORT AND CONNECTIVITY 

Support  for  greater  connectivity  as  a  key  area  for  co-operation  is  confirmed  by  the 
consultation  
*Extend core TEN-T networks to the Eastern partners 
*Identify regional networks in the south to be included in the TEN-T guidelines 

Cooperation  on  transport  connectivity  and  telecommunications  contributes  to  the  economic 
development  of  partners  and  can  be  a  means  to  foster  dialogue  and  a  starting  point  for 
regional  co-operation  between  them.  In  the  East,  a  safe  and  sustainable  transport  system, 
connected  to  the  Trans-European  Transport  Network  (TEN-T),  is  the  key  to  promoting 
economic growth between the neighbourhood partners and the EU. The EU should therefore 
extend the core TEN-T to the Eastern partners and together with the IFIs and other partners 
promote the necessary investment in this extended network. 

10 

 
 
In  the  South,  regulatory  convergence  and  harmonisation  should  be  sought  in  line  with  the 
Regional Transport Action Plan 2014-2020 addressing maritime, aviation, rail, road and urban 
transport. At the same time the EU should identify priority regional infrastructure projects and 
prepare the indicative maps of the future Trans-Mediterranean Transport Network. 

A Common Aviation Area will be promoted by implementing agreements signed so far with 
Georgia, Israel, Jordan, Moldova, and Morocco (and close to finalisation with Ukraine) and 
negotiating new agreements.  The EU should also help its partners’ ability to benefit from the 
Motorways of the Seas with improved port infrastructure and related services. 

Furthermore,  the  EU  will  pursue  convergence  on  telecommunications  with  our  partners 
through  regional  groups  of  regulators  in  the  East  and  South  respectively  and  further  space 
cooperation with interested partners. 

ENERGY SECURITY AND CLIMATE ACTION 

The  consultation  revealed  strong  support  to  give  energy  cooperation  a  greater  place  in  the 
ENP, both as a security measure (energy sovereignty) and as a means to sustainable economic 
development 
*Support  greater  energy  independence  through  support  to  diversification  of  energy  sources, 
better cooperation on energy efficiency, and transition to the low carbon economy 
*New framework for cooperation with partners beyond the neighbourhood 

With  the  goal  of  building  a  resilient  Energy  Union,  with  an  ambitious  climate  policy  at  its 
core, the EU is committed to strengthen its energy dialogue with neighbourhood countries in 
energy  security,  energy  market  reforms  and  the  promotion  of  sustainable  energy.  The  EU 
strongly  relies  on  its  neighbourhood  for  safe,  secure  and  predictable  generation  and 
transportation of energy and therefore needs to strengthen its dialogue with partner countries 
on  energy  security  and  sustainable  production.  Equally,  energy  is  key  to  the  stable 
development and resilience of the partners themselves. 

Some  of  our  partners  have  significant  or  potentially  significant  income  from  their  energy 
resources or from their position as transit countries. However all partners’ economic stability 
depends  to  a  greater  or  lesser  extent  on  a  sustainable  balance  between  their  energy 
consumption and the profile of their energy supplies or production. Some partner countries in 
the  East  are  vulnerable  to  over-dependence  on  specific  suppliers  and  therefore  have  a  vital 
interest  in  increasing  sovereignty  by  diversifying  their  sources  of  supply.  The  EU  will 
continue to support such efforts. Others in the South also face challenges in managing their 
rising energy demand. 

Initiatives such as establishing gas reverse flow capacity to Ukraine, completing the Southern 
Gas  Corridor  and  making  best  use  of  the  new  energy  discoveries  while  assessing  and 
preventing potential risks are important to achieving pan-European energy security. 

Increased  cooperation  on  energy  efficiency,  renewable  energy  sources,  on  demand 
management  and  on  action  to  mitigate  and  adapt  to  climate  change  will  help  to  develop 
economies  that  are  more  efficient,  competitive,  resilient  and  stable  while  increasing  energy 
sovereignty  and  reducing  emissions.  The  promotion  of  the  full  implementation  of  the 
expected  Paris  Climate  Agreement  and  its  subsequent  developments  including  in  particular 

11 

 
 
the commitments by our partners are important to meet these goals The EU will work to share 
best practice and undertake joint research, including on the phasing out of subsidies for fossil 
fuels,  introducing  robust  emissions  monitoring,  reporting  and  verification  frameworks, 
including  in  the  longer  term,  emission  trading  systems,  which  could  be  linked  to  the  EU 
emissions trading system as they become ready. 

To  increase  the  opportunities  for  investment  and  trade,  the  EU  will  enhance  full  energy 
market integration with the Republic of Moldova, Ukraine, and Georgia through the Energy 
Community.  The  EU  should  also  pursue  regulatory  approximation  with  other  partners  on 
sectors of mutual interest. As regards the Southern Neighbourhood partner countries, the EU 
will offer cooperation, on a tailored basis, to promote the production, distribution, trade and 
efficient consumption of energy. As a first step, the EU will work with interested partners and 
the International Energy  Agency  to  establish comprehensive country energy policy reviews, 
including an inventory of barriers to energy investments and the identification the appropriate 
reforms. 

The  EU  will  support  sub-regional  cooperation  as  appropriate  in  the  Eastern  Mediterranean, 
the  Maghreb  and  the  Southern  Caucasus.    Beyond  the  neighbourhood,  a  new  Thematic 
Framework  should  be  used  to  develop  work  with  partners  such  as  Turkey,  Kazakhstan, 
Turkmenistan,  and  potentially  Iraq  and  Iran.  This  will  facilitate  trans-regional  work  and 
investment  on  these  issues,  building  on  successful  initiatives  such  as  INOGATE.  When  the 
conditions are right, the EU could consider reframing the energy relationship with Russia, on 
the basis of international and European law. 

V. 2. THE SECURITY DIMENSION 

The consultation showed a very widespread wish to see security given a stronger place in the 
ENP,  in  order  to  make  partner  countries  more  resilient  against  threats  they  currently 
experience. The new focus on security will open up a wide range of new areas of cooperation 
under  ENP.  Cooperation  could  include  security  sector  reform,  border  protection,  tackling 
terrorism and radicalisation, and crisis management. 

In  June  2015,  the  European  Council  restated  the  need  to  empower  and  enable  partners  to 
prevent  and  manage  crises,  including  through  concrete  projects  of  capacity  building  with  a 
flexible geographic scope. Given the specific security challenges partners are facing, the EU 
should  focus  on  enhancing  cooperation  on  security  sector  reform.  Building  further  on  the 
European Agenda on Security,2 the new ENP will prioritise tackling terrorism and preventing 
radicalisation; disrupting serious and organised cross-border crime and corruption; improving 
judicial cooperation in criminal matters, and fighting cybercrime, in full compliance with the 
rule of law and international law, including international human rights law.  

Proactive engagement with partners in the neighbourhood is necessary to address root causes 
of  cross-border  threats  and  to  contribute  to  securing  common  borders.  Together  with 

2 Communication from the Commission to the European Parliament, the Council, the Economic and Social Committee and 
the Committee of the Regions : the European Agenda on Security, COM (2015) 185 final 

12 

 
 
 
                                                            
interested partner countries, information-sharing and capacity building to tackle cross-border 
threats  should  be  stepped  up.  In  addition,  the  new  ENP  will  tackle  cross-cutting  migration 
related security challenges, such as smuggling of migrants, trafficking in human beings, social 
cohesion and border protection/management.  

Further  efforts  will  be  made  to  mainstream  and  strengthen  the  implementation  of  UNSCR 
1325  on  women,  peace  and  security,  its  follow-up  resolutions  and  a  gender  perspective  in 
Common Security and Defence Policy planning, implementation and review. 

Security  sector  reform: the EU intends to step up outreach to partner countries' authorities 
who deal with matters related to security. Interested partner countries should be supported in 
their reform of the civilian and military security. Such cooperation may include strategic and 
policy  advice,  institution  and  capacity  building  activities,  dialogues  with  civil  society,  and 
support for community security programmes. 

threat  of 

Tackling  terrorism  and  preventing  radicalisation:  The 
terrorism  and 
radicalisation is affecting both Europe and its neighbours. The EU will therefore step up work 
with  partners  on  counter-terrorism,  including  preventing  radicalisation,  countering  violent 
extremism,  supporting  criminal  justice  responses  to  counter-terrorism,  and  countering  and 
suppressing  the  financing  of  terrorism  via  appropriate  anti-money  laundering  frameworks. 
Involving  civil  society,  especially  youth  organisations,  in  preventing  radicalisation  will  be 
crucial.  The  existing  Radicalisation  Awareness  Network  (RAN)  and  its  recently  established 
Centre  of  Excellence  will  be  a  crucial  platform  for  exchange  and  cooperation.  Tackling 
broader 
inequality,  hate  speech,  youth 
unemployment,  and  illiteracy  will  all  also  be  part  of  a  wider  de-radicalisation  effort.  Cross-
cultural dialogue, such as that promoted by the Anna Lindh foundation, will be key. 

issues  such  as 

justice,  gender 

ineffective 

Disrupting  organised  crime:  organised  crime  and  corruption  can  threaten  stability  in  the 
wider  region.  The  EU  should  increase  support  to  partner  countries  in  their  fight  against 
serious  and  organised  international  crime,  including  in  the  fight  against  migrant  smuggling 
and  trafficking  of  human  beings  and  dismantling  criminal  networks  through  promoting  the 
use  of  financial  investigations  as  a  complement  to  purely  criminal  law  tools.  To  this  end, 
European  Agenda  on  Security3 committed  to  extending  the  work  of  the  'Policy  Cycle'  (on 
serious  and  organised  crime)  to  neighbouring  countries.  The  EU  should  also  explore  the 
possibility of involving partner countries in existing financial investigation networks (such as 
networks  of  Financial  Intelligence  Units).  Furthermore,  the  EU  will  continue  to  work  with 
partner countries on countering the illicit trafficking in human beings, the illicit trafficking of 
Small  Arms  and  Light  Weapons  and  drug  cooperation  and  support  them  on  the 
implementation  of  integrated  and  balanced  national  drug  policies.  Where  necessary,  the  EU 
will  seek  to  improve  the  legal  framework  for  judicial  and  police  cooperation  with  partner 
countries and work towards its implementation. With Interpol, the need should be examined 
to build further law enforcement capacity in neighbouring countries and work on facilitating 
information  exchanges  with  EU  Member  States  and  Europol.  With  Eurojust,  the  EU  will 

3 The European Agenda on Security (COM(2015)185 final) 

13 

 
 
                                                            
promote  a  stronger  engagement  and  cooperation in  order  to  ease  judicial  cooperation  on  all 
serious crimes investigations. 

Fighting  cybercrime:  The  EU  Cybersecurity  Strategy4 provides  the  operational  framework 
for  further  engagement  with  partners  in the  neighbourhood.  The  EU  should  offer  assistance 
for  capacity  building  on  cybersecurity  and  resilient  information  infrastructures,  on  the  fight 
against  cybercrime  and  cyber  terrorism,  including  through  threat  analysis,  fostering 
specialisation  in  law  enforcement,  judicial  training  and  supporting  the  creation  of  relevant 
national  policies,  strategies  and  institutions  in  third  countries.  The  EU  will  continue  to 
promote the ratification and implementation of the Budapest Convention on cybercrime with 
its  partners  in  the  neighbourhood.  The  Convention  provides  a  model  for  drafting  national 
cybercrime legislation and a basis for international co-operation in this field. 

Chemical,  Biological,  Radiological,  and  Nuclear  Risk  Mitigation:  help  partners  improve 
their  preparedness  and  response  capacity,  including  through  the  EU-funded  Centres  of 
Excellence. 

Common  Security  and  Defence  Policy  (CSDP)  cooperation  and  dealing  with  protracted 
conflicts: Structures set up under the EU's security and defence architecture can be a forum 
for  an  exchange  of  best  practice,  for  cooperation  on  common  objectives,  and  for  capacity 
building. Thus, a new impetus will be given to cooperation on matters related to the CSDP. In 
order to foster a spirit of partnership and of shared responsibilities – on a case by case basis – 
the participation of partner countries should be promoted in CSDP missions and operations, 
EU  Battlegroups,  and  their  association  to  relevant  programmes  and  agencies  such  as  the 
European Defence Agency and the European Security and Defence College. The EU will seek 
to  establish  security  and  defence  dialogues  with  partner  countries  and  facilitate  the 
participation  of  officials  and  officers  from  partner  countries  in  courses  at  relevant  defence 
colleges.  In  line  with  the  EU’s  Comprehensive  approach  to  external  conflict  and  crises,  all 
means available will be used, including – where necessary, CSDP missions and operations or 
the EU’ Special Representatives – to support the management of crises and the settlement of 
protracted conflicts in the neighbourhood. 

Crisis  management  and  response:  The  EU  should  build  up  partners’  early  warning, 
prevention  and  preparedness  capacity  offering  close  partnerships  in  civil  protection  and 
cooperation  with  the  EU's  civil  protection  mechanism.  The  EU  will  also  put  stronger 
emphasis on health security aspects by strengthening country capacities to respond effectively 
to  health  threats  including  communicable  diseases.  Subject  to  an  ad  hoc  decision,  access  to 
imagery  provided  by  the  EU  Satellite  Centre  could  also  be  considered  in  light  of  crisis 
response  needs.  Flexibility  in  programming  and  the  use  of  ENP  and  other  financial 
instruments  will  be  crucial  in  this  approach.  Therefore  close  coordination  will  be  ensured 
between  the  security  work  done  under  the  ENI  with  wider  CFSP/CSDP  activities,  with  the 
work  of  EU  Member  States  bilaterally  and  with  relevant  international  organisations. 
Synergies  with  other  instruments  should  also  be  explored  together  with  links  to  work  on 

4 Cybersecurity Strategy of the European Union: An Open, Safe and Secure Cyberspace (JOIN(2013) 1 final) 

14 

 
 
                                                            
 
principled  and  needs-based  humanitarian  aid,  as  well  as  resilience  and  stabilisation.  In  line 
with the comprehensive approach, involvement of EU Member States and EU agencies will 
be key both in the design and implementation of support in the security sector. 

V. 3. MIGRATION AND MOBILITY 

The  strong  interest  of  partners  in  greater  mobility  towards  the  EU  is  confirmed  by  the 
consultation,  which  took  place  at  a  moment  of  major  flows  of  migrants  and  refugees  often 
transiting  neighbouring  countries.  The  ENP  will  reflect  an  intensified  cooperation  on  both 
regular and irregular migration 
*Increase cooperation with partners beyond the neighbourhood 
* Increase support for those receiving and assisting refugees and IDPs 
*Increase cooperation on root causes of irregular migration and forced displacement 
*Effective cooperation on returns and readmission and sustainable reintegration 
But also 
* Better identification of skills gaps in EU to facilitate mutually beneficial legal migration; 
* Better support for circular migration  
* Encourage recognition of qualifications 
* Launch dialogues on academic mobility 

As  the  recent  refugee  crisis  shows,  addressing  the  root  causes  of  irregular  migration  and 
forced displacement is central to stabilisation in the Neighbourhood. 

The  European  Agenda  on  Migration;  European  Council  conclusions  of  25-26  June  and 
15-16 October;  the  High-Level  Conference  on  the  Eastern  Mediterranean/Western  Balkans 
Route  of  8  October  and  the  Valletta  Summit  on  Migration  of  11-12  November  2015  –  all 
confirm the new political impetus for deeper cooperation with ENP partners.  

Develop partnerships based on an integrated approach 

Cooperation with partners on migration and mobility has deepened over the last years through 
several  far-reaching  visa  dialogues  and  a  number  of  Mobility  Partnerships.  Dialogues  have 
also  been  established  with  other  partners  both  in  the  East  and  in  the  South.  The  EU  is 
committed  to  reinforcing  cooperation  with  neighbours  and  beyond  –  not  least  with  the 
Western Balkans, Turkey, countries of the wider Middle East, the Sahel region and the Horn 
of Africa. In order to foster reforms and reinforce the commitment of our partner countries to 
work  in  closer  partnership,  differentiation  between  partner  countries  will  be  developed, 
working more closely on visa and mobility issues with those that are willing to engage with 
the EU, including  visa liberalisation and facilitation dialogues with partners. 

There  are  already  ongoing  regional  dialogues  such  as  the  Rabat  and  Khartoum  processes  in 
the  South  and  the  Budapest  and  Prague  processes  in  the  East  as  well  as  on  the  Eastern 
Partnership panel on Migration and Asylum for intra-regional cooperation and programming. 
A  Thematic  Framework  could  be  developed  to  enable  more  effective  cooperation  on 
migration with countries outside the neighbourhood. 

15 

 
 
 
 
 
Promote mutually-beneficial migration and mobility 

Alongside efforts to tackle irregular migration, the EU continues to believe that mobility and 
people-to-people  contacts  should  be  promoted.  The  EU  intends  to  promote  better  tools  in 
order to identify skill gaps in the European  labour  market and  encourage  the recognition of 
qualifications of third country nationals working in the EU. 

The EU will strengthen its legal framework and promote its full and tailored implementation 
taking into account the specific situation of ENP partners. 

In March 2016, the Commission intends to present a revision of the EU Blue Card Directive, 
to  improve  and  further  facilitate  the  entry  and  residence  of  highly  skilled  third-country 
nationals in the EU. The EU should facilitate the extension of academic mobility and improve 
the  legal  framework  for  conditions  of  entry  and  residence  in  the  EU  applicable  to  ENP 
nationals for the purpose of research, studies, pupil exchange, training and voluntary service.  

The  EU  will  cooperate  with  ENP  countries  to  encourage  and  make  progress  on  facilitating 
recognition of skills and qualifications. 

In  cooperation  with  Member  States,  we  will  promote  a  skilled  labour  migration  scheme, 
including  the  possibility of offering preferential schemes for nationals of the ENP countries 
willing to engage on further cooperation on migration with the EU. 

A platform of dialogue with businesses, trade unions and social partners will be established in 
order  to  better  assess  labour  market  needs  and  the  role  that  migration  could  play  in  that 
respect. In the longer term a new approach to legal migration would be beneficial, building on 
the  example  of  "expression  of  interest"  systems  which  allow  employers  to  identify  priority 
applicants from a pool of pre-selected candidates. 

In  the  same  vein,  more  effective  ways  of  building  links  with  diaspora  communities,  of 
reinforcing  regional  mobility  schemes,  including  South-South  mobility,  and  of  working  on 
circular  migration  will  be  sought,  including  through  identification  of  schemes  in  relevant 
sectors  (e.g.  agriculture,  or  tourism)  in  line  with  the  2014  Seasonal  Workers  Directive.  The 
EU should also promote migration schemes in small and medium size entreprises and training 
programmes for entrepreneurs in European countries. 

The  EU  should  also  look  at  allowing  people  temporarily  residing  in  the  EU  to  engage  in  a 
business, professional or other activity in their country of origin, while maintaining their main 
residence  in  one  of  the  Member  States.  Issues  related  to  efficient  transfer  of  remittances 
should also be addressed. 

 We  will  create  a  new  start-up  (Startback)  fund  to  provide  capital  to  promote  "brain 
circulation". This Fund will support migrants returning to their countries of origin after their 
stay  in  the  European  Union,  so  they  can  reintegrate  and  contribute,  with  the  acquired  skills 
and knowledge, to local economic and societal development. 

The  EU  will  continue  to  foster  a  realistic  and  fair  narrative  on  migration  and  to  combat 
vigorously all forms and manifestations of racism and discrimination promoting intercultural 
dialogue, cultural diversity and mutual understanding. 

16 

 
 
 
Ensuring protection for those in need 

The  EU’s  wider  neighbourhood  contains  several  major  protracted  crises  and  hosts  close  to 
40% of the world’s refugees and internally displaced persons. Therefore, the EU needs a more 
integrated  and  more  comprehensive  response  promoting  close  linkages  between  short-term 
humanitarian needs and longer-term development and security responses. 

The EU should assist partner countries in developing their asylum and protection systems by 
supporting  those  displaced  by  conflicts,  with  particular  consideration  to  unaccompanied 
refugee  children,  to  ensure  that  their  basic  needs  are  guaranteed,  their  human  rights  are 
protected and their socio-economic and human potential is not wasted and is made available 
to  host  societies  and  communities.  The  new  Regional  Development  and  Protection 
Programmes (RDPPs) in North Africa and the Horn of Africa which will become operational 
in 2016, as well as the already existing RDPP in the Middle East (Jordan, Lebanon and Iraq) 
will be crucial to that end. Their aim is to support partner countries hosting large numbers of 
displaced  people  through  capacity  building  and  assistance,  primarily  in  the  area  of 
international protection and asylum, partly by increasing the resilience of forcibly-displaced 
populations and their host communities. 

Tackling irregular migration 

The EU will work with the ENP countries to address and mitigate the root causes of irregular 
migration both of their nationals and of those transiting their countries. 

The EU will work with to return in a dignified and sustainable manner those who do not, or 
no  longer,  have  the  right  to  stay  in  the  EU,  including  through  the  conclusion  and  full 
implementation of readmission agreements and voluntary return and readmission schemes, in 
line with the Commission's Action Plan on return. The EU will also assist ENP countries to 
develop their own return policy allowing them to return persons to third countries of origin. 
Appropriate  mechanisms  should  be  further  developed  to  ensure  that  those  returning  to  their 
countries of origin can reintegrate and contribute, to the local economy and society. All tools 
will be mobilised to increase cooperation on return and readmission, thus giving readmission 
a central place in all dialogues with countries of origin and transit of irregular migrants5. 

The  EU  should  increase  support  for  efforts  to  devise  national  and  regional  strategies 
addressing migrant smuggling and to build integrated border management standards, working 
with relevant EU agencies. 

Stepping up cooperation on border management 

Proactive engagement with partners in the neighbourhood in the field of border management 
is necessary to better manage migratory pressures. Together with interested partner countries, 
the  EU  will  further  intensify  work  on  information  exchange,  administrative  capacity  and 
operational  and  technical  cooperation.  This  could  be  done  via  training,  research,  capacity-
building projects and pilot projects with partner countries, notably working through relevant 
EU Agencies, including FRONTEX and EUROPOL. 

5 EU Action plan on return , 9 September 2015, COM(2015)453 final 

17 

 
 
                                                            
VI. THE REGIONAL DIMENSION 

 The consultation was in part conducted through the existing regional cooperation formats, 
which will continue. However, the consultation confirmed a strong interest in developing new 
ways of working with the neighbours of the neighbours. 
* New outreach beyond the boundaries of the ENP area 
* New thematic frameworks to tackle shared challenges e.g. on migration, energy, security 
and health 

In 2009, the EU and its six Eastern partners launched the Eastern Partnership (EaP), based on 
a  commitment  to  fundamental  values  (including  democracy,  the  rule  of  law  and  respect  for 
human  rights  and  fundamental  freedoms)  a  market  economy,  sustainable  development  and 
good governance. Since then, the EaP has developed into a vibrant forum for exchange and 
cooperation on issues ranging from trade to energy, transport and education or environment. 
The 2015 EaP Summit in Riga listed the strengthening of institutions and good governance, 
mobility and people-to-people contacts, market opportunities and interconnections as shared 
priorities which will be taken forward with partners, including in the multilateral framework 
of  the EaP. It is the sole right of the EU and its partners to decide how they want to proceed 
in their relations. 

Regional cooperation in the Southern neighbourhood has seen progress through the Union for 
the  Mediterranean.  The  organisation  has  proved  to  be  a  valuable  forum  for  political  and 
economic  discussion,  providing  a  framework  for  cooperation  on  issues  of  common  interest 
and  on  operational  projects  in  the  region.  Many  in  the  public  consultation  recommended 
deepening  that  cooperation.  The  Commission  and  the  High  Representative  work  to  further 
invigorate  this  regional  cooperation.  For  this  reason,  the  EU  will  give  priority,  wherever 
suitable, to the UfM in its regional cooperation efforts. 

Relations between neighbours themselves should be reinforced, and sub-regional cooperation 
in  both  the  east  and  the  south  should  be  promoted.  Where  relevant,  regional  cooperation 
between  neighbourhood  partners  and  Member  States,  together  with  candidate  and  potential 
candidate  countries,  will  be  pursued  through  EU  macro-regional  strategies  and  territorial 
cooperation programmes, with a view to fully exploiting their potential. 

Where  connections  and  interdependencies  with  other  partners  require  broader  formats  of 
cooperation,  third  countries  should  be  involved.  The  EU  will  use  Thematic  Frameworks  to 
offer cooperation on regional issues of concern to our neighbourhood to state and multilateral 
actors in the wider region, including accession and other partners. Thematic Frameworks will 
be  used  to  provide  a  regular  forum  to  discuss  joint  policy  approaches,  programming  and 
investment that reach beyond the neighbourhood. These will be ad hoc meetings of interested 
parties  from  the  Southern  or  Eastern  neighbourhood,  bringing  together  interested  Member 
States,  neighbourhood  countries  and  regional  partners,  together  with  International  Financial 
Institutions  (IFIs),  international  organisations  and  other  donors.  Civil  society  and  private 
sector  organisations  will  be  invited  where  appropriate.  The  format  of  these  Thematic 
Frameworks and those involved will depend on the issue and will build on existing structures. 
Migration, energy and security will be particular priorities. 

18 

 
 
Turkey is an EU candidate country and an important neighbour to both the EU itself and to 
several partner countries. When developing the Thematic Frameworks that reach beyond the 
neighbourhood,  the  EU  should  continue  to  work  closely  with  Turkey  on  issues  of  common 
concern. 

The  EU’s  relations  with  the  Russian  Federation  have  deteriorated  as  a  result  of  the  illegal 
annexation  of  Crimea  and  Sebastopol  and  the  destabilisation  of  eastern  Ukraine.    There  are 
several issues pertaining to the region on which constructive cooperation would be helpful in 
terms of addressing common challenges and exploring further opportunities, when conditions 
allow. 

Cooperation  in  other  fora  will  complement  these  regional  engagements.  The  EU  should 
increase its outreach to partners in sub-Saharan Africa and the Sahel region and in this context 
ensure coherence with ongoing work on the post-Cotonou agenda. The EU should also engage 
all  relevant  partners  in  the  Middle  East  and  North  Africa  in  the  areas  of  political  dialogue, 
investment and aid. This will include further development of the dialogue with the League of 
Arab  States,  cooperation  with  the  Organisation  of  Islamic  Cooperation  (OIC),  the  Gulf 
Cooperation  Council  (GCC),  the  African  Union,  the  Arab  Maghreb  Union  and  the  work 
within  the  framework  of  the  Western  Mediterranean  Forum  (5+5  Dialogue).  The  Black  Sea 
Synergy Initiative has developed as an important forum for tackling common problems whilst 
encouraging  political  and  economic  reform.  The  EU  should  continue  to  promote  regional 
cooperation  and  increase  coordination  with  the  Council  of  Europe,  the  Organisation  for 
Security and Cooperation on Europe (OSCE) and its bodies. 

The EU Regional Strategy for Syria and Iraq as well as the ISIL/Da'esh threat outlines actions 
that the EU and its Member States are taking to help restore peace and security in Syria and 
Iraq.  As  concerns  Iran,  as  the  recent  deal  is  implemented,  there  is  scope  for  further 
cooperation on regional issues, including energy. Given Central  Asia's strategic importance, 
the  EU  should  expand  its  outreach  to  relevant  partners  with  a  view  to  establishing  strong, 
durable and stable relationships with countries in the region. 

VII. MORE EFFECTIVE DELIVERY 
VII.1 FLEXIBILITY OF FINANCIAL INSTRUMENTS 

The EU has committed substantial resources to support the major stabilisation challenge in the 
neighbourhood,  with  over  €15  billion  being  avai lable  through  the  European  Neighbourhood 
Instrument (ENI) over the period 2014-20. To further maximise impact, the EU will seek to 
leverage  considerable  additional  funding  by  further  enhancing  its  cooperation  with  major 
International Financial institutions and through the Neighbourhood Investment Facility (NIF). 
The  EU  will  modernise  and  strategically  align  its  technical  assistance  instruments  (TAIEX 
and Twinning) to provide tailor-made support. The EU and the partner countries will continue 
to work together to ensure that the EU financial assistance reaches the intended beneficiaries 
and is not diverted by fraud. 

Association  Agendas  and  partnership  priorities  will  be  the  basis  for  setting  priorities  for 
assistance. Bilateral allocations to partner countries will reflect the priorities of the ENP and 

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the level of their ambitions, and commitment to and implementation of reform will continue 
to guide the allocation of funds under the ENP umbrella programme. 

Developments in the neighbourhood countries have indicated a growing need for international 
financial and economic support to underpin necessary transition and stability. The European 
Union's existing toolbox provides for resources that are targeted to a variety of issues, but in 
many cases limited in size when compared to the needs that have and can be identified. The 
Commission  will  therefore  conduct  an  in-depth  assessment  over  the  coming  months  with  a 
view  to  developing  options,  including  an  instrument,  that  could  better  and  more  efficiently 
address the financial needs of neighbourhood countries, at the same time supporting their on-
going  necessary  reform  efforts.  This  work  could  build  on  the  experience  of  existing 
instruments, including those created over the past years to support EU Member States. 

The response to the conflicts in Syria and Ukraine and the use of Trust Funds are examples of 
how the EU's financial instruments can react quickly and flexibly. However, more needs to be 
done  to  accelerate  assistance  and  to  ensure  it  is  better  adapted  to  rapidly  evolving  political 
circumstances and priorities. 

The  Commission  and  the  High  Representative  will  seek  to  speed  up  aid  delivery  by 
streamlining procedures. They will examine the case for a 'flexibility cushion' within the ENI, 
i.e. to set aside resources until used for urgent programming of unforeseen needs, particularly 
for  conflict  and  post-conflict  needs;  refugee  support;  crises  and  disaster  response;  and  for 
security and stabilisation programmes. 

Consideration will be given to changing the financial regulations so that unused funds within 
this 'Flexibility cushion' can be carried forward to the next year. The EU will use the mid-term 
review  of  EU  external  financing  instruments  in  2017  to  look  at  streamlining  administrative 
procedures and, where required, proposals will be made to amend the underlying legal acts. 

Improved  donor  coordination  is  essential  to  maximise  resources,  but  also  to  make  the  EU's 
contribution  more  visible.  Wherever  possible  a  joint  EU  response  in  the  region  should  be 
shaped around the EU brand enhancing the use of joint programming with EU Member States 
on  and  of  shared  analysis  from  all  EU  sources,  (including  EU  Delegations,  CSDP  missions 
and EU Special Representatives). Simplified approaches should facilitate joint  projects  with 
EU Member States and agencies. 

The EU will strengthen effective donor co-ordination with other EU funding mechanisms and 
with major international financial institutions and with the African Union, the League of Arab 
States,  and  the  Gulf  Co-operation  Council  as  well  as  working  through  the  Union  for  the 
Mediterranean, the Eastern Partnership and regional fora. 

VII.2 VISIBILITY, COMMUNICATION AND OUTREACH 

Better  communicating  and  promoting  EU  policies  will  be  at  the  heart  of  the  new  ENP. 
Improved  public  diplomacy  will  contribute  to  better  explaining  the  rationale  of  EU  policies 
and the positive impact of concrete EU actions. EU should seek to ensure greater visibility for 
the  use  of  EU  funds  for  the  neighbourhood  in  the  period  2014-2020.  Visibility  for  the  EU 
should be made a condition of working with implementing partners. 

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Support  will  help  promote  independent,  reliable  and  credible  media.  The  EU  could  also 
support  strategic  communication  capacity  within  governments  for  better  understanding  of 
public opinion, to plan and adapt campaigns communicating the benefits of reform. 

As  agreed  in  the  European  Council,  the  EU  should  work  with  partners  to  expose 
misinformation  and  respond  decisively  when  it  targets  the  EU.  An  appropriate  mix  of 
proactive  strategic  and  tactical  communication  tools  will  allow  the  EU  and  its  partners  to 
better monitor and  analyse  the  media, to better understand perceptions and narratives in the 
partner countries and to explain the benefits of each country's cooperation with the EU with 
the  ultimate  goal  of  creating  a  positive  narrative  about  support  and  cooperation  under  the 
ENP. 

More  involvement  of  the  Member  States  in  setting  communication  priorities  should  help 
ensure a more coherent EU voice. EU Delegations in the partner countries will work closely 
together  with  Member  States'  representatives  in  their  engagement  with  key  stakeholders,  in 
particular civil society. Outreach activities are also necessary inside the EU to explain to our 
citizens why stable, secure and prosperous countries in our near vicinity are key to the EU's 
own stability and security. 

The EU should engage more on this public diplomacy agenda with governments, civil society, 
the business community, academia and other citizens in partner countries, in particular youth, 
including through science diplomacy. 

PARTNERSHIPS FOR YOUTH 

Engagement  with  young  people  across  the  neighbourhood  will  be  stepped  up  by  creating 
partnerships  for  youth.  These  partnerships  will  promote  people  to  people  contacts  and 
networks for young people of all ages in the EU and neighbouring countries, to foster mutual 
respect,  understanding  and  open  societies.  It  should  include  a  substantial  increase  in 
exchanges  between  schools  and  universities,  including  the  potential  for  a  pilot-project  of  a 
European  School  in  the  neighbourhood.  Lifting  the  current  cap  in  place  on  funding  for 
Erasmus students' outgoing travel will encourage more young Europeans to study in partner 
countries in order to increase links between Member States and partner countries. 

The  development  ‘Friends  of  Europe’  clubs  and  alumni  networks  for  those  who  have 
participated  in  EU  activities,  and  where  possible  develop  networks  of  "youth  ambassadors" 
could  be  tools  for  such  outreach,  together  with  the  creation  of  fora  to  enable  exchanges 
between young leaders and future opinion formers from across the EU and its neighbourhood. 

VIII. NEXT STEPS 

This  Joint  Communication  concludes  the  formal  consultation  process  on  the  review  of  the 
European Neighbourhood Policy. Over the course of 2016, we intend to discuss the proposals 
contained in this Joint Communication, as well as subsequent positions taken by the EU, with 
partner countries, with a view to jointly determine the shape of our future relations, based on 
the recommendations outlined in this Joint Communication. 

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