JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Strengthening EU support for Tunisia
Date: 2016-09-29
Institutions: European Commission, European External Action Service
Subjects: EU aid, European neighbourhood policy, Tunisia, democratisation, economic transition, human rights, investment aid, transition economy

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   EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 29.9.2016  JOIN(2016) 47 final   JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Strengthening EU support for Tunisia   
 
 
1. Supporting Tunisia’s transition: a strategic priority for the EU 

Five years on from the 2011 Revolution that ousted the authoritarian regime of President Ben 
Ali, Tunisia’s democratic transition is at a critical juncture. The Tunisian people have paved 
the way for a modern democracy based on freedom of expression, transparent and inclusive 
elections,  the  separation  of  powers,  the  rule  of  law  and  respect  for  human  rights  and 
fundamental  freedoms.  Leaders  across  the  political  spectrum,  the  country’s  vibrant  civil 
society  and  the  general  population  have  demonstrated  their  resolve  to  develop  a  pluralistic 
society in which all Tunisians — men and women alike — can enjoy individual freedom and 
greater participation in economic and political life. This has been recognised by the awarding 
of the Nobel Peace Prize to the National Dialogue Quartet in December 2015.  

The  Tunisian  experience  is  a  source  of  hope  in  the  countries  of  Europe’s  immediate 
neighbourhood,  many  of  which  face  instability,  violence  and  the  return  of  authoritarian 
regimes. Yet, despite the undeniable changes brought by the Revolution, political, economic 
and  security  difficulties  continue  to  affect  the  lives  of  ordinary  Tunisians,  jeopardising  the 
viability of the transition. 

It  is  in  the  EU’s  strategic  interest  to  have  a  strong,  democratic  and  stable  Tunisia  as  its 
neighbour. The EU’s continued commitment to helping Tunisia in its transition to democracy 
is reflected in the revised European Neighbourhood Policy (ENP)1, which underlines the need 
to develop differentiated approaches tailored to the specific situations of the EU’s neighbours. 
It  therefore  requires  an  EU  response,  adapted  to  the  country’s  specific  circumstances,  that 
covers a broad range of policy areas to help address the many challenges the transition brings 
with it and initiatives that would make it possible to fully develop the potential of the already 
advanced EU-Tunisia partnership.  

2.  A  vulnerable  transition:  Tunisia's  response  in  tackling  complex  and  increasing 
challenges 

The  Tunisian  transition  is  fragile  and  faces  serious  risks.  In  addition,  multiple  and 
interconnected  challenges  prevent  most  Tunisians  from  reaping  all  the  benefits  of  the  new 
democratic system and its associated freedoms. 

A series of terrorist attacks during 2015 targeted the tourism sector and security institutions. 
The attack on the border city of Ben Guerdane in March 2016, initiated from Libya, illustrates 
the  growing  security  threats  from  increasingly  organised  groups  taking  advantage  of  the 
instability in Libya, as well as from the cross-border smuggling of arms, drugs and people. 

Following  the  adoption  of  the  progressive  Constitution  and  the  successful  organisation  of 
elections  in  2014,  the  Tunisian  authorities  have  had  the  difficult  task  of  implementing  the 
necessary  institutional,  legal  and  administrative  reforms  while  also  dealing  with  the 
immediate  socioeconomic  and  security  concerns.  Parliament’s  high  number  of  priorities,  its 
limited capacities and resources and the broad consultations required as part of an inclusive 
democratic  process  account  for  the  delays  in  implementing  reforms.  They  are  also  an 
indication that the still incomplete transition requires more political resolve. The setting up of 

1 Joint Communication to the European Parliament, the Council, the European Economic and Social Committee and the 
Committee of the regions of 18th November 2015 – review of the European Neighbourhood Policy. 

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a  Constitutional  Court  and  of  the  independent  bodies  whose  task  will  be  to  consolidate 
democracy remains an urgent priority. New alleged cases of torture and ill-treatment highlight 
the need for a major change in both the law and administrative practices to translate the rights 
and  freedoms  guaranteed  under  the  Constitution  into  reality  for  ordinary  citizens.  Local 
elections, to be held in 2017, will be an important milestone in the democratic process. 

Since 2011, the Tunisian economy has been severely affected by multiple shocks, resulting in 
a  sharp  drop  in  growth,  macroeconomic  imbalances,  increasing  unemployment,  increased 
poverty (15% of Tunisians live below the poverty line) and informal economic activity. This 
has made it more difficult to address the persistent socioeconomic challenges that predate the 
Revolution  and  fuel  discontent  among  ordinary  Tunisians,  notably  young  people  and  those 
living in less developed regions, leading in some cases to social unrest. In his first speech to 
the  Parliament,  the  newly  appointed  Head  of  Government  Youssef  Chahed  acknowledged 
these  challenges.  Still,  Tunisia  possesses  the  attributes  it  needs  to  transform  its  democratic 
achievements into economic success; a young, educated and dynamic population, a strategic 
geographical  position,  a  long-standing  industrial  history  with  successful  export-oriented 
businesses, extensive untapped natural resources such as solar energy. Key structural reforms 
are  urgently  needed  to  pursue  macroeconomic  stabilisation,  stimulate  sustainable  economic 
growth and entrepreneurship, make the administration more efficient, fight against corruption, 
adapt education, skills development and vocational training to the needs of the labour market, 
and achieve a fairer distribution of public spending and wealth. 

Successive  governments  have  been  committed  to  speeding  up  structural  reforms.  Civil 
society,  including  social  partners,  also  broadly  recognises  that  such  reforms  are  necessary, 
even  if  political,  social  and  administrative  resistance  is  inevitable  and  based  on  legitimate 
concerns. Sustainable, effective and inclusive transitions take time and perseverance, because 
people  need  to  see  tangible  progress  in  order  to  generate  confidence  and  stability.  Strong 
support from the EU is therefore required and expected.   

The  Tunisian  government  has  proposed  a  number  of  laws  —  some  of  which  have  already 
been  adopted  by  Parliament  —  aimed  at  implementing  the  provisions  of  the  Constitution, 
completing the democratic institutional framework and reforming the economy. In an effort to 
decisively  address  the  deteriorating  security  environment,  a  number  of  emergency  security 
measures have also been passed. These include a new counter-terrorism law, which, it must be 
noted, has raised concerns about respect for human rights. The Tunisian authorities are also 
working on a national strategy to counter terrorism and prevent radicalisation. Dialogue and 
cooperation with international partners, including the EU, have significantly improved. 

In  May  2016,  the  government  presented  a  proposal  for  a  five  year  development  plan.  It 
provides  a  comprehensive  analysis  of  the  many  challenges  the  country  faces  and  outlines 
reforms,  especially  in  the  field  of  governance  and  public  administration,  as  well  as  policy 
orientations for  economic,  financial,  regional  and  social  development.  Once  adopted,  it  will 
help  international  donors,  including  the  EU,  to  tailor  support  in  accordance  with  Tunisian 
priorities. The government is organising an Investment Conference in November to mobilise 
support for the implementation of the plan. The EU supports this proposed course of action. 

3. Strengthened EU support for Tunisia’s transition since 2011 

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EU-Tunisia relations date back to 1976 and gained significant momentum when Tunisia and 
the  EU  signed  an  Association  Agreement  in  1995,  paving  the  way  for  two  decades  of 
mutually beneficial economic and trade relations. 

The 2011 Revolution marked a turning point. The EU has used all its instruments to support 
the  Tunisian  people,  accompany  the  electoral  process,  promote  human  rights,  support 
democratic and socioeconomic reforms, improve security and strengthen civil society. It has 
also  offered  Tunisia  closer  ties  across  the  board,  through  enhanced  economic  and  trade 
integration and a Mobility Partnership. As its main partner, the Tunisian authorities made the 
strategic choice to strengthen the country’s relations and integration with the EU resulting, in 
2012, in a ‘Privileged Partnership' and an ambitious ENP Action Plan2. This generated intense 
political contacts, higher levels of financial assistance and significant progress in many areas 
including trade relations, security sector reforms, education, research and innovation.   

EU support for and financial assistance to Tunisia since the 2011 Revolution:  

Between  2011-16,  EU  assistance  to  Tunisia  amounted  to  EUR  2  billion  (EUR  1.2 
billion  in  grants  and  €800  million  in  macro-financial  assistance).  This  assistance 
supported  the  implementation  of  the  Tunisian  democratic  and  economic  transition  and 
contributed to  the country’s  fiscal stability through  macro-financial  assistance.  This also 
includes 85 projects co-funded by the EU and implemented by civil society organisations, 
worth EUR 41 million. 

European  financial  institutions3  have  also  granted  concessional  loans  worth  EUR2.6 
billion for infrastructure, social, private sector development and water sanitation projects. 
The  Neighbourhood  Investment  Facility  (NIF)  improved  the  concessional  form  of  these 
loans. 

Tunisia is also one of the top beneficiaries of EU regional programmes for the Southern 
Neighbourhood, in areas such as the environment, energy, migration and security. 

On  1st  January  2016,  Tunisia  became  associated  to  Horizon  2020,  offering  significant 
opportunities to Tunisian researchers, academics and innovators, and supporting Tunisia's 
effort to invest in research and innovation as a driver of socio-economic development. 

Tunisians  have  greatly  benefited  from  the  EU  higher  education  programmes  Erasmus 
Mundus  and  Tempus  and  has  also  been  given  greater  access  to  prominent  EU 
programmes such as the European Enterprise Network which fosters business links. 

2 Relations Tunisie – Union Européenne: un partenariat privilégié. Plan d'action 2013 – 2017. 
https://eeas.europa.eu/delegations/tunisia/documents/press_corner/plan_action_tunisie_ue_2013_2017_fr.pdf 

3 The European Investment Bank, the Agence Française de Développement, the European Bank for Reconstruction and 
Development, the Kreditanstalt für Wiederaufbau. 

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To help Tunisia in a particularly difficult economic context, in 2016, the EU introduced an 
exceptional temporary measure4 granting an additional duty-free tariff quota for olive 
oil of 35 000 tonnes per year for two years. 

4. Towards a more effective EU response in supporting Tunisia’s reforms  

In  2016,  Tunisia  requested  a  qualitative  and  quantitative  reinforcement  of  its  relations  with 
the EU. This  Communication  proposes initiatives for more effective EU support  in  order to 
fully develop the potential of the ‘Privileged Partnership’ in line with the revised ENP. 

Supporting the implementation of Tunisia’s reform efforts is fundamental to safeguarding its 
economic resilience and the success of its democratic transition.  The five year  development 
plan can provide guidance to the EU to identify priorities across policy areas. 

It  is  our  aim  to  jointly  tackle  high  youth  unemployment,  reduce  social  disparities, 
support  civil  society  and  public  administration  reform,  better  manage  migration  and 
mobility, fight corruption and address security problems.  

At the same time, we will continue our support for the implementation of the Constitution and 
the  strengthening  of  Tunisia’s  democratic  institutions,  as  well  as  for  the  promotion  of  and 
respect  for  human  rights.  The  EU  is  convinced  that  it  is  in  our  mutual  interest  to  promote 
closer ties and dialogue between the EU and Tunisian society, through reinforced contacts and 
mobility. This means recognising the key role culture plays in political, social and economic 
development. In its support, the EU will continue to pay special attention to young people and 
women and to systematically involving civil society. 

4.1. Promoting good governance and public administration reform 

Tunisia has made impressive strides towards consolidating the rule of law and democracy, as 
exemplified  by  its  new  Constitution.  However,  the  democratic  principles  and  fundamental 
values  enshrined  in  it  now  need  to  be  translated  into  functioning  institutions,  efficient 
regulations and procedures and an effective civil service. 

The Tunisian Constitution sets out clear goals for public administration and good 
governance, which are primary axes of the government’s reform strategy. We therefore 
propose to:  

  Support  the  design  and  implementation  of  a  civil  service  reform  strategy,  with  a 
view to make public administration more productive, accountable and motivated.  
  Help  to  improve  public  finance  management  and  reform  the  tax  system,  moving 
towards a simplier and more equitable system. This aims to make the public sector 

4 Proposal for a regulation of the European Parliament and of the Council on the introduction of emergency autonomous trade 
measures for the Republic of Tunisia, COM(2015)0460. 

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more accountable and restore fiscal margins to fund the government’s policies; it will 
be expanded by supporting public oversight institutions. 

  Support  the  implementation  of  the  decentralisation  process.  To  help  build  service-
oriented administration and promote local governance in the least developed regions, 
the  EU  will  offer  advice  on  strengthening  municipalities  in  policy  development  and 
coordination,  human  resources,  accountability  and  service  delivery  while  ensuring 
equality and non-discrimination in access to public services for vulnerable groups. 
Improve  central  and  local  service  delivery  by,  for  instance,  reducing  red  tape, 
facilitating access to information and introducing e-administration wherever possible. 
  Support  the  fight  against  corruption  by  helping  to  develop  appropriate  means  and 

 

measures designed to promote integrity and better prevent corruption. 

  Continue to support the reform of the judiciary to improve access to an independent 

and efficient judicial system. 

  Further  support  the  Parliament,  to  strengthen  its  oversight  of  the  government’s 
actions  and  reinforce  its  initiative  capacity;  in  this  regard,  propose  to  the  European 
Parliament that it increases its support for the Tunisian Parliament, making full use of 
the recently established Joint Parliamentary Committee. 

  Twinning will be increasingly used in a targeted manner, in particular when it comes 

to strengthening public administration. 

4.2. Boosting the role of a vibrant civil society 

Since the Revolution, civil society organisations (CSOs) have played a determining role 
in  ensuring  the  success  of  the  democratic  transition.  Strengthening  civil  society, 
including social partners, continues to be one of the EU’s main priorities.   

The  EU  is  convinced  that  CSOs  should  be  systematically  involved  in  the  dialogue  with  the 
authorities  in  all  policy  areas.  In  this  respect,  the  reappointment  of  a  Minister  for  relations 
with  civil  society  is  a  very  positive  step.  The  existing  tripartite  dialogue  (EU,  Tunisian 
authorities  and  civil  society)  on  all  aspects  of  EU-Tunisia  relations  should  be  reinforced, 
notably where EU-Tunisia relations would benefit from greater transparency and involvement 
of CSOs, including migration and mobility, security and counter-terrorism. In this spirit, the 
EU  proposes  that  every  formal  EU-Tunisia  meeting  (notably  Association  Council, 
Association  Committee  and  subcommittees),  as  well  as  every  formal  negotiation  session 
between  the  EU  and  Tunisia,  be  both  preceded and  followed  by  a  meeting  with  CSOs.  The 
government should also continue to consult Tunisian CSOs in relation to the negotiations on a 
Deep  and  Comprehensive  Free  Trade  Area  (DCFTA)  with  the  EU,  including  through  the 
tripartite dialogue. This support will continue during negotiations and for implementation. 

The EU will continue to involve civil society in the identification and implementation of its 
programmes  and  to  associate  CSOs  in  the  respective  steering  committees.  It  will  also 
reinforce the funding of all categories of CSOs, notably at regional and local level, with both 
bilateral and thematic financial instruments, in line with the EU civil society roadmap5.  

5 The EU has developed an EU country roadmap ("Feuille de route de l'UE pour l'engagement envers la société 
civile  en  Tunisie  2014  –  2017"  published  in  2015)  for  engagement  with  civil  society  aimed  at  improving  the 
impact  and  predictability  of  EU  actions.  The  four  priorities  are:  durably  strengthening  CSOs;  creating  an 
environment favourable to civil society action; strengthening the participation of CSOs in political dialogue and 
national and local policy-making; improving coordination between CSOs and technical partners/donors. 

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4.3.  Investing  in  the  future:  Creating  jobs  and  fostering  sustainable  socioeconomic 
development  

Young Tunisians expect to be able to earn a living and contribute to the socioeconomic 
development of their own country. The EU respects and supports this aspiration. 

Boosting the economy is crucial to reducing unemployment, especially among the young. The 
EU is Tunisia’s largest trading partner, accounting for 60 % of total Tunisian trade. 70 % of 
foreign direct investment (FDI) comes from the EU.  

Since the Revolution, in addition to the detrimental economic effects of the terrorist attacks on 
tourist sites, a weak global economy and a slower pace of reform, have severely affected the 
Tunisian  economy.  Current  economic  growth  is  insufficient  to  bring  down  unemployment; 
investment has declined while fiscal and external deficits have increased. In this context, there 
is a strong need to stimulate investment, in particular from the private sector. 

Although the business environment is better than others in the region, the many challenges of 
the transition have led to a progressive decrease in FDI. A number of structural rigidities that 
hamper  growth  also  need  to  be  addressed.  Domestic  investment  must  be  promoted  by 
unlocking the  entrepreneurial  potential  of  the  population.  The  EU  will focus  on  helping  the 
government  to  implement  priority  economic  reforms  in  line  with  the  five  year  plan,  in 
particular to foster macroeconomic stability and create a favourable business and investment 
climate, boosting competitiveness, employment and inclusive growth. 

The EU is ready to work closely with Tunisia for a fast conclusion of the EU-Tunisia DCFTA 
negotiations,  so  as  to  bring  concrete  deliverables  within  3  years.  This  will  be  a  key  step 
towards  deepening  Tunisia’s  economic  integration  with  the  EU.  The  EU  offers  Tunisia 
asymmetrical  liberalisation,  which  will  allow  Tunisian  companies  immediate  access  to  EU 
markets,  while  Tunisia  will  be  able  to  open  up  its  own  market  progressively.  Beyond 
encouraging trade between the EU and Tunisia, the DCFTA will be instrumental in promoting 
regulatory reforms and enabling Tunisia to advance globally. It will be vital to ensure that the 
positive  impact  of  the  DCFTA  goes  hand  in  hand  with  the  domestic  reforms  needed  for 
people to benefit from it, in particular marginalised areas and groups. 

The  EU  also  welcomes  Tunisia's  commitment  to  conclude  a  Euro-Mediterranean  Aviation 
Agreement with a view to opening up aviation markets and achieving regulatory convergence. 
This will help the tourism sector to recover and will encourage further economic integration.  

Stepping up support for trade, competitiveness and private sector development 

The  EU  will  support  Tunisia  in  the  negotiation  and  implementation  of  the  DCFTA  with 
targeted  measures  to  accompany  and  enhance  the  regulatory  and  institutional  reforms,  and 
help modernise and upgrade key sectors of the economy, notably agriculture and services, to 
ensure that Tunisia is prepared for and gets the maximum benefit from this agreement. 

Based  on  discussions  with  the  Tunisian  authorities,  specific  programmes  of  sectoral 
upgrading (“mise à niveau”) will be put into place for the implementation of the DCFTA. 

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In  the  same  spirit,  the  EU  has  already  recently  launched  two  new  initiatives  to  support 
Tunisian micro, small and medium-sized enterprises as part of a regional package:  

1) About EUR 200 million6 of new financing for Tunisia will be unlocked during the next 5 
years  under  the  EU  Initiative  on  Financial  Inclusion.  This  new  package  will  ease  access  to 
finance  for  micro,  small  and  medium-sized  enterprises  that  have  difficulty  getting 
commercial  loans  from  local  banks  by  improving  credit  conditions  (through  a  guarantee 
mechanism) and developing new sources of financing (microfinance, risk capital, etc.). 

2)  In  July  2016,  the  EU  also  adopted  a  new  initiative  worth  about  EUR100  million  in  new 
lending  for  micro,  small  and  medium-sized  enterprises  to  enhance  competitiveness  and 
boost trade based on a value chain approach.  

In support of and to complement the five year plan, the following initiatives will be promoted: 

  Agriculture: The Commission will propose to anticipate the entry into force of the EU's 

trade concessions of a future DCFTA on a temporary basis. 

  Technical  regulations:  Bring  forward  the  negotiation  of  an  agreement  on  conformity 
assessment  and  acceptance  of  industrial  products  in  the  context  of  the  DCFTA 
negotiations for Tunisia's key priority sectors by setting up a regular, structured regulatory 
dialogue, agreeing on clear milestones and providing the necessary assistance to close the 
gaps in the preparatory work. 

  Rules  of  origin:  Support  a  swift  revision  of  the  Regional  Convention  on  pan-Euro-
Mediterranean preferential rules of origin (PEM Convention), bringing in modern, simpler 
and more flexible rules of origin, creating new opportunities for Tunisia to benefit from 
preferential access to  the  EU  market and from regional integration. In  view of the PEM 
Convention  revision  and  the  DCFTA,  the  EU  will  explore  with  Tunisia  advanced 
implementation of the PEM rules as well as temporary flexibility for certain products to 
be implemented as soon as possible to give Tunisian exports an immediate boost. 

  Trade  and  investment  promotion:  Together  with  its  Member  States,  the  EU  will 
propose a ‘Partnership for Growth’ with sector-based missions to Tunisia by EU private 
sector  operators  to  encourage  investment.  The  EU  will  also  help  Tunisia  implement  its 
trade and export promotion strategy, including in EU Member States, which do not have a 
strong  business  relationship  with  Tunisia.  It  will  ensure  visibility,  market  opening  and 
related  export,  import  and  investment  opportunities  for  Tunisian  products;  and  enhance 
the regulatory investment framework to improve the business climate in Tunisia.  

  Developing  opportunities  to  encourage  the  Tunisian  diaspora  to  get  involved  in  the 
Tunisian economy through programmes to harness the skills and mobilise the investment 
of  the  diaspora  for  local  and  regional  development  in  Tunisia,  and  including  the 
mobilisation of a start-up fund as outlined in the ENP review. 

  SMEs:  The  EU  will  also  exchange  good  practices  with  Tunisia  included  in  the  Small 
Business Act for Europe to simplify the regulatory and policy environment for SMEs.   

6 These programmes are part of regional initiatives covering several countries. Amounts indicated are forecasted 
as the portion of financing under these regional initiatives that is likely to be devoted to Tunisia. 

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  Customs:  Support  the  implementation  of  the  ambitious  customs  administration  reform. 
This  includes  simplifying  and  automating  procedures,  improving  governance  and 
impartiality and ensuring the availability of information.  

  Connectivity:  Make  greater  use  of  the  NIF  to  unlock  investments  from  European 
financing  institutions  to  help  finance  priority  infrastructure  projects,  as  identified  in  the 
five year plan and included in the Trans-Mediterranean Transport Network. 

  Access to affordable sources of finance: Help to develop and implement a strategy for 
financial  inclusion;  leverage  EU  grants  to  get  European  financing  institutions  and  the 
private  sector  to  invest  in  micro,  small  and  medium-sized  enterprises  (involving  the 
Tunisian diaspora in the EU); diversify sources of financing for these enterprises beyond 
commercial bank lending (support for the development of a private equity market, leasing, 
factoring  and  crowdfunding)  and  extend  support  to  the  network  of  existing  microcredit 
institutions; promote and invest in developing the social economy as an innovative way of 
getting economic returns on investments, producing real benefits for local communities. 
  The  statistical  system:  The  government  needs a  reliable  statistical  system  to  be  able to 
monitor  the  implementation  of  reforms.  The  EU  will  support  the  enhanced  governance 
and  operational  autonomy  of  the  institutions  in  the  statistical  system,  in  particular  in 
relation to key national and regional socioeconomic indicators. 

The  EU  believes  that  Tunisia  can  invest  in  its  own  future  by  taking  advantage  of  the 
global  transformation  of  modern  economies,  notably  in  sustainable  energy,  innovation 
and the digital economy. 

In this respect, the EU welcomes the inclusion of the green economy as one of the proposed 
axes of the five year plan. Moving to a resource-efficient, low-carbon economy requires a 
high  level  of  political  ambition  by  the  Tunisians.  Clean  technologies,  renewable  energy, 
energy efficiency, sustainable use of natural resources and improved waste management can 
go a long way toward tackling environmental and climate change issues by enabling Tunisia 
to fulfil the laudable commitment it made at the UN Climate Change Conference (COP 21). 

Strengthening  the  national  research and  innovation  system  will  be  critical to  transforming 
the Tunisian economy and make it more competitive and connected to the global economy.  
Tunisia's association to Horizon 2020 allows for enhanced cooperation in these areas.  

In this context, the EU should mobilise its resources to do the following: 

  Through a dedicated programme, help the government implement the revised renewable 
energies  and  energy  efficiency  national  strategies  (e.g.  by  co-funding  investments; 
promoting technology transfer and providing financial support for the Energy Transition 
Funds). Upgrade production facilities by helping industry to acquire up-to-date resource-
efficient  technology,  for  instance  through  a  specific  Euro-Tunisian  partnership  and 
reinforced cooperation with European clusters and their affiliated companies.  

  With European financial institutions, help Tunisia tackle its environmental problems, in 

air pollution, waste and wastewater management particularly in large cities.  

  Support the research and innovation system to become more competitive and performing, 
so  that  it  is  able  to  support  the  transformation  of  the  economy.  Under  Horizon  2020, 
provide  guarantees  to  financial  intermediaries  providing  loans,  as  well  as  advisory 
services,  direct  loans  and  equity  instruments  for  innovative  companies  boosting 
participation in this programme. 

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 
In agriculture, support organic food value chains, also to help boost exports to the EU. 
  Support the development of the digital economy to accelerate growth in the IT sector, 
e.g. by providing support  for digital ecosystems, high-speed internet deployment, digital 
innovators, etc. Mainstream the digitalisation of SMEs. 

  Boost cultural and creative industries by fostering clusters and encouraging cross-sector 

collaboration and participation in EU programmes such as Creative Europe. 
Identify current and future labour market needs to design appropriate skills strategies.  

 

4.4. Addressing disparities throughout society 

It  is  imperative  to  bridge  the  social  and  regional  development  gaps  that  were  largely  at  the 
root of the 2011 Revolution. Decisive action is needed to sustain the democratic transition, 
as social discontent, especially among young people, continues to grow. This is compounded 
by years of underinvestment in public services and social and economic infrastructure in large 
parts  of  the  country.  There  is  also  a  clear  link  between  the  lack  of  opportunity  and  the 
risk of radicalisation which represents a threat to both Tunisia and the EU.  

Addressing all this will come at a significant cost that Tunisia will not be able to bear alone 
given its limited resources. In this respect, the following measures are proposed: 

  Decentralisation  will  be  the  lynchpin  of  the  efforts  to  reduce  regional  disparities.  The 
EU  commits  to  use  its  resources  to  help  build  the  professional  capacities  of  local 
administrations,  but  also  to  ensure  that  adequate  levels  of  financial  resources  are 
transferred to local authorities so they can deliver essential services. The EU should also 
support  the  formulation  of  regional  socioeconomic  development  strategies  laying  the 
ground for initiatives in the most impoverished regions. 
Improve  social  policy,  including  by  modernising  and  better  targetting  its  social  safety 
net. 

 

  The  EU  will  support  social  infrastructure  projects  (education,  health,  water  and 
sanitation) to improve living standards in the most deprived urban and rural areas and to 
open up landlocked territories. Again, the NIF and the European financial institutions can 
help the government meet social infrastructure needs. 

  Support  better  access  to  quality  education  and  vocational  training  relevant  to  and 
matched with labour market needs, based on Tunisia’s new vocational training strategy. 
  The  EU  should  also  extend  Erasmus+  to  fund  traineeships  for  Tunisian  students  in 
European  companies  and  reinforce  financial  support  to  benefit  more  students  and  staff 
and strengthen higher education institutions, national authorities and youth organisations. 
  Promote youth employment through the setting up of supporting schemes whereby those 
who  are  not  in  education,  employment  or  training  will  receive  a  good-quality  job  offer 
within a given period adapted to each individual need and situation. 

4.5. Support in tackling security challenges 

Tunisia's  security  is  crucial,  not  only  for  its  people  and  economic  development, 
particularly in the tourism sector, but also for the European Union and its citizens.  

Since 2015, the EU has been deepening its security cooperation with Tunisia, in particular in 
the area of counter-terrorism and the prevention of violent extremism and radicalisation, while 

10 

 
 
 
 
 
 
 
 
 
 
promoting  full  respect  for  the  rule  of  law,  human  rights  and  fundamental  freedoms.  This 
cooperation responds to an acute problem that can only be tackled collectively.  

In addition to the G7+5 security coordination mechanism,7 which is instrumental in enhancing 
information  sharing  and  coordination  between  the  Tunisian  authorities  and  international 
partners, the EU has intensified its dialogue with Tunisia by holding a first enhanced political 
dialogue on security cooperation and the fight against terrorism in September 2015 in Tunis. 
The  next  session  is  planned  for  later  this  year  to  review  progress  made  and  identify  further 
steps for cooperation. Civil society will be involved in this process. 

In line with the strengthened security dimension of the ENP review, the EU should: 

  Continue  to  implement  the  EUR  23  million  programme  supporting  security  sector 

reform and provide support for capacity building through other instruments. 

  Provide, whenever required, extra support in implementing security measures, notably 

in line with the package of projects presented to Tunisia in March 2016. 

  Help  Tunisia  fight  terrorism  and  prevent  radicalisation,  notably  in  building  national 
capacities and provide expertise through regional and thematic programmes on issues 
such  as  preventing  radicalisation,  border  management;  encouraging  rule-of-law-
compliant  investigations  and  prosecution;  strategic  communications;  addressing 
foreign  terrorist  fighters  and  organised  crime.  While  Common  Security  and  Defence 
Policy activities have not yet been judged as the most suitable way to support Tunisia, 
the EU is willing to consider all options to support Tunisia  where required. 

 

  Strengthen  cooperation  with  relevant  EU  agencies  and  bodies,  including  Europol, 
CEPOL,  Eurojust,  Frontex  and  the  European  Security  and  Defence  College  and  the 
EU Radicalisation Awareness Network Centre of Excellence. 
Include  the  firearms  and  explosives  dimension  in  the  policy  dialogue  and  focus  on 
practical operational measures to improve law enforcement cooperation in this field. 
  Strengthen  cooperation  in  disaster  risk  management  and  prevention  through  the 
activities  of  the  Union  Civil  Protection  Mechanism,  in  particular  by  strengthening 
early warning systems and prevention and preparedness capacity. 

4.6. Joint efforts in managing better migration and mobility 

Managing migration effectively is a political priority for the EU and Tunisia. The EU is keen 
to intensify cooperation with Tunisia in this area, in particular prevent irregular migration and 
tackle  root  causes  of  migration.  The  majority  of  Tunisians  who  live  abroad  reside  in  EU 
Member States8.  

Tunisia  has  been  working  on  a  national  migration  policy  since  2012.  It  aims  to  ensure  that 
migrants in Tunisia receive assistance, that their rights are protected and that they are given 

7 The G7+5 consists of all G7 members, plus the EU, Belgium, the Netherlands, Spain and Switzerland. 

8 Over 360.000 Tunisian citizens are residing legally in the EU (number of residence permits valid on 
31.12.2014) - the number has increased in the last years and does not include those having double citizenship  
(second or third generation of Tunisians). At the same time, a number of Tunisian nationals without a residence 
permit are irregularly staying in the EU (in 2015, some 10.235 Tunisian nationals were issued a return decision, 
but only 3.325 returns effectively took place).    

11 

 
 
 
 
 
 
 
 
 
                                                            
the  opportunity  to  participate  in  Tunisia’s  development.  Its  completion  and  implementation 
should be supported.  

In 2011, despite the difficult internal context, Tunisia showed solidarity and sheltered a large 
number  of  refugees  fleeing  Libya.  The  significant  number  of  Libyans  still  present  in  the 
country  could  rapidly  become  a  heavy  socioeconomic  burden  if  the  situation  in  Libya  does 
not improve or deteriorates further. 
The  EU  and  10  Member  States9  concluded  a  Mobility  Partnership  (MP)10  with  Tunisia  in 
2014,  providing  a  comprehensive  framework  for  policy  dialogue  and  cooperation  with 
Tunisia in all aspects of migration management.  
As announced in the Communication on establishing a new Partnership Framework with third 
countries under the European Agenda on Migration of 7th June 201611, the EU seeks to take 
relations with Tunisia to the next level, building on the existing Mobility Partnership. 

In this respect, it is proposed to focus the EU's support on: 

  Addressing the root causes of irregular migration notably by supporting necessary 

domestic reforms and Tunisia’s socioeconomic development. 

  Continuing to help to develop and implement a comprehensive and effective national 

migration and asylum policy with a fully-fledged institutional framework.  

  Swiftly  concluding  negotiations  (due  to  start  in  mid-October  2016)  on  a  visa 
facilitation  agreement  in  parallel  with  a  readmission  agreement.  In  line  with  the 
principle of differentiation of the ENP, Tunisia could be the first country in the EU's 
Southern  neighbourhood  to  benefit  from  an  effective  and  ambitious  visa  facilitation 
agreement, which could be beneficial in implementing the DCFTA. 

  Supporting practical co-operation between Tunisia and EU Member States on returns, 
the reintegration of returnees readmitted by Tunisia and the development of Tunisia’s 
cooperation  on  readmission  with  relevant  African  countries.  To  improve  migration 
management,  the  EU  could  also  support  the  development  of  a  Tunisian  biometric 
registry of the population.  
In  line  with  the  Valletta  Action  Plan,  Tunisia  will  be  a  pilot  country  for  the 
identification and implementation of legal migration schemes. 

 

  Reinforcing existing mobility schemes (Erasmus+, Erasmus for Young Entrepreneurs 
in the framework of the COSME programme, Marie Sklodowska Curie Actions under 
Horizon 2020 and national schemes). 

  Continuing  to  support  Tunisia's  capacity  to  prevent  irregular  migration,  focussing 
on  fighting  organised  crimes,  smuggling  and  trafficking  in  human  beings,  notably 
through better border management. 

9 Belgium, Denmark, Germany, Spain, France, Italy, Poland, Portugal, Sweden and the United Kingdom. 

10 Déclaration conjointe pour le Partenariat de Mobilité entre la Tunisie, l'Union Européenne et ses Etats 
Membres participants, http://ec.europa.eu/dgs/home-affairs/e-library/documents/policies/international-
affairs/general/docs/declaration_conjointe_tunisia_eu_mobility_fr.pdf 

11   Communication from the Commission to the European Parliament, the European Council, the Council and 
the European Investment Bank –— COM(2016) 385 final. 

12 

 
 
 
 
 
                                                            
In addition to the existing bilateral and regional instruments, the EU Emergency Trust Fund 
for  Africa  will  be  used  to  deliver  EU  support  on  these  priorities.  The  future  External 
Investment Plan will help address the root causes of migration. 

5. The way forward 

Tunisia's five year development plan contains an ambitious programme of reforms. While the 
EU  has  already  done  a  lot  to  support  Tunisia’s  democratic  transition,  this  Communication 
underlines the EU’s ambition to support Tunisia’s remarkable transformation. 

The  priority  given  to  EU-Tunisia  relations  will  continue  to  be  reflected  in  the  intensity  of 
political  contacts  and  regular  visits,  as  part  of  a  broader  political  dialogue  focusing  on  a 
variety of topics of mutual interest, including regional and global issues. The Commission and 
the  High  Representative  also  propose  to  hold  a  high  level  EU-Tunisia  meeting,  bringing 
together political leaders from both sides, every two years. The first meeting is proposed for 
autumn  2016  in  Brussels.  On  occasion,  following  the  participation  of  the  Tunisian  Head  of 
Government in the Foreign Affairs Council in July 2015, Tunisian ministers could be invited, 
for  specific  relevant  discussions  in  the  Council.  Ways  to  further  enhance  contacts  with 
Tunisian  authorities  across  sectoral  policies,  at  the  level  of  individual  or  groups  of 
Commissioners, and relevant Commission services, should also be considered . 

In order to support key structural reforms, foster sustainable socioeconomic development and 
boost  the  competitiveness  of  the  private  sector,  the  Commission  envisages  increasing  its 
annual financial assistance in the form of grants from EUR186.5 million in 2015  to up to 
EUR  300  million  in  2017.  This  assistance,  made  available  by  harnessing  the  financial 
possibilities  that  various  EU  instruments  offer,  should  be  clearly  designed  to  help  Tunisia 
implement its ambitious reform agenda, while at the same time responding to Tunisia’s most 
pressing needs. 

The EU is committed to maintaining a sustained level of funding for the period until 2020. 
In accordance with the provisions of the European Neighbourhood Instrument, such enhanced 
support  would  remain  subject  to  Tunisia’s  continuing  its  democratic  transition  including 
progress  made  in  consolidating  the  rule  of  law  and  ensuring  respect  for  fundamental  rights 
and carrying out the reforms as outlined in the five year plan. 

The  Commission  intends  to  use  part  of  this  additional  funding  to  leverage  further  support 
from the European financial institutions. This demonstrates the EU’s and European financial 
institutions’  commitment  to  supporting  Tunisia  by  mobilising  additional  resources  for 
strategic projects and private sector development. They are ready to mobilise approximately 
EUR  800  million  a  year  until  2020.  The  EU  will  also  help  Tunisian  authorities  increase 
private sector involvement in these projects through transparent public-private partnerships. 

The  Commission  has  also  proposed  EUR  500  million  in  additional  macro-financial 
assistance, to be disbursed in 2016 and 2017. The proposal, adopted by the Council and the 
European Parliament on 6 July 2016, represents the largest such operation ever carried out in 
the  Southern  Neighbourhood.  Its  implementation  now  needs  to  be  pursued  swiftly,  in  full 
cooperation  with  the  Tunisian  authorities.  Given  the  increase  in  external  financing  needs 
expected from the implementation of the five year plan, the EU could consider further, on the 
basis  of  an  assessment  of  economic  needs,  further  macro-financial  assistance  in  the  coming 
years to support implementation of the structural reform programme.  

13 

 
 
 
 
 
 
 
 
 
 
Stepping up support as described will require EU institutions and Member States, Tunisia and 
other partners to further enhance their coordination and efficiency and reinforce the financial, 
human  and  technical  resources  allocated  to  supporting  Tunisia.  Helping  Tunisia  address  its 
challenges and supporting its transition through a coordinated, coherent EU support package 
will increase the impact of EU support and the EU’s leverage and visibility. It could also be 
an important step towards developing a full joint programming of its assistance between the 
EU  and  Member  States.  The  EU  supports  the  process  establishing  a  donor  coordination 
platform based on the 5 year plan, to ensure that international support is tailored to Tunisia’s 
needs and has greater impact, following the experience of the G7+5 mechanism in the area of 
security  and  counter-terrorism.  To  help  implement  these  measures  and  flank  them 
accordingly, particular use will be made of the TAIEX instrument. 

The  Commission  and  the  High  Representative  intend  to  mobilise  expertise  from  across  the 
EU institutions and policy areas in support of Tunisia, in particular through the 'Commission - 
EEAS  Group  on  the  Southern  Mediterranean',  also  involving  the  European  financial 
institutions.  The  Group  will  monitor  and  take  stock  of  the  implementation  of  this 
Communication.  A  similar  structure  in  the  Tunisian  administration  would  reinforce  inter-
ministerial coordination and help with a swifter response and delivery on commitments. 

6. Conclusion 

The Commission and the High Representative are convinced that Tunisia would benefit from 
a  stronger,  more  effective  EU  support  in  the  short  and  medium  term.  This  joint 
Communication proposes a number of ways of doing that. However, EU support will be more 
effective  if  it  can  be  combined  with  increased  support  from  Member  States  and  other 
international partners. 

The  EU  must  demonstrate  that  it  can  live  up  to  the  challenge  of  securing  democracy  and 
respect  for  human  rights  and  ensuring  security  and  prosperity  in  its  neighbourhood.  The 
Commission  and  the  High  Representative  therefore  propose  to  work  with  the  Council,  the 
European  Parliament  and  European  financial  institutions  to  consolidate  this  coordinated, 
effective  EU  response,  particularly  in  view  of  the  Investment  conference  scheduled  to  take 
place in Tunis on 29-30 November 2016, as well as any other initiatives. 

14