JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL A renewed partnership with the countries of Africa, the Caribbean and the Pacific
Date: 2016-11-22
Institutions: Directorate-General for International Cooperation and Development, European Commission
Subjects: ACP countries, climate change policy, cooperation agreement (EU), cooperation policy, employment policy, human rights, migration policy, negotiation of an agreement (EU), revision of an agreement, sustainable development

EN 

   EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Strasbourg, 22.11.2016  JOIN(2016) 52 final   JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL A renewed partnership with the countries of Africa, the Caribbean and the Pacific {SWD(2016) 380 final} {SWD(2016) 381 final}  
 
 
Contents 

1. INTRODUCTION ................................................................................................................................... 4 

2. STRATEGIC EU INTERESTS ................................................................................................................ 5 

3. A POLITICAL PARTNERSHIP BUILT ON SPECIFIC PRIORITIES .......................................................... 7 

3.1 EU priorities towards partner countries ......................................................................................... 8 

3.1.1 Promoting peaceful and democratic societies, good governance, the rule of law and human 

rights for all ............................................................................................................................ 8 

3.1.2 Promoting inclusive sustainable growth and decent jobs for all ............................................ 9 

3.1.3 Turning migration and mobility into opportunities and addressing challenges together ..... 11 

3.1.4 Ensuring human development and dignity ........................................................................... 12 

3.1.5 Protecting the environment and tackling climate change ..................................................... 12 

3.1.6 Alliance on common challenges ........................................................................................... 13 

3.2. EU priorities tailored to the regions ........................................................................................... 14 

3.2.1 Africa .................................................................................................................................... 14 

a. Peace and security, stability, democracy, the rule of law, good governance and human rights ....... 15 

b. Mutual economic opportunities for sustainable development .......................................................... 16 

c. Migration and mobility management ............................................................................................... 17 

d. Human development ........................................................................................................................ 17 

3.2.2 Caribbean ............................................................................................................................. 18 

a. Peace and human security, democracy, the rule of law,  good governance  and human rights ........ 19 

b. Regional integration, inclusive sustainable growth, trade and job creation ..................................... 19 

c. Human development ......................................................................................................................... 20 

d. Climate change and sustainable management of natural resources .................................................. 20 

3.2.3 Pacific ................................................................................................................................... 21 

a. Good governance, human rights and gender .................................................................................... 21 

b. Inclusive sustainable growth ............................................................................................................ 22 

c. Climate change and sustainable management of natural resources .................................................. 23 

4. A MORE TARGETED AND FLEXIBLE PARTNERSHIP ......................................................................... 23 

4.1 Lessons learned ........................................................................................................................... 24 

4.2 A flexible partnership built on a strong regional approach ......................................................... 25 

4.2.1 The options ........................................................................................................................... 25 

4.2.2 The proposed option ............................................................................................................. 26 

4.2.3 Outreach beyond ACP countries .......................................................................................... 26 

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4.3 A multi-level, multi-stakeholders partnership with key principles for cooperation .................... 26 

4.3.1 Fundamental principles for cooperation ............................................................................... 27 

4.3.2 Subsidiarity and complementarity principles ....................................................................... 27 

4.3.3 Actors ................................................................................................................................... 27 

4.4 A partnership that delivers better ................................................................................................ 27 

4.4.1 Diversified partnership ......................................................................................................... 28 

4.4.2 Means of implementation ..................................................................................................... 28 

4.5 A partnership supported by the right institutional set-up ............................................................ 28 

4.6 A partnership supported by a legal framework ........................................................................... 29 

4.7 Next steps .................................................................................................................................... 29 

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1. Introduction 

The  Partnership  Agreement  between  the  members  of  the  African,  Caribbean  and  Pacific 
(ACP) Group of States on the one hand and, on the other hand, the European Union and its 
Member  States,  signed  in  Cotonou  on  June  20001  is  due  to  expire  in  February  2020. 
Negotiations  between  the  parties  in  order  to  examine  provisions  to  govern  relations 
subsequently  have  to  start  no  later  than  August  2018.2  The  expiry  of  the  Partnership 
Agreement,  referred  to  as  the  Cotonou  Partnership  Agreement  (CPA),  covering  over  100 
countries with a total population of some 1.5 billion people, marks a strategic opportunity to 
rejuvenate  the  EU’s  relationship  with  its  partners  in  Africa,  the  Caribbean  and  the  Pacific, 
taking  into  account  the  changed  global  context  and  focusing  the  partnership  on  common 
interests, objectives and shared responsibilities. 

This  Communication  sets  out  the  ideas  and  proposed  building  blocks  for  a  political 
partnership with the ACP countries. It builds on the internationally agreed UN 2030 Agenda3, 
which provides a universal set of common objectives and on the Global Strategy for the EU’s 
Foreign and Security Policy,4 which provides strategic guidance on the EU’s external interests 
and ambitions. The Communication is also coherent with the Commission proposal to revise 
the European Consensus on Development.5 

The  EU  reaches  out  to  partners,  like-minded  countries,  and  regional  groupings  in  order  to 
pursue common goals. The European Commission and the High Representative of the Union 
for  Foreign  Affairs  and  Security  Policy  are  keen  to  invest  in  partnerships  based  on  the 
principle  of  co-responsibility  to  make  these  true  partnerships.  This  requires  that  partner 
countries engage positively and with similar ambitions. 

The longstanding relationship with the ACP countries provides a good starting point to build a 
renewed  political  partnership.  Partners  on  both  sides  would  need  to  undertake  significant 
changes in order to make their future relationship apt to the task in today’s world and to forge 
a powerful alliance delivering on key priorities. In view of the priorities, the changed context, 
and lessons learned from the implementation of the CPA, a simple rollover of the CPA would 
not be able deliver. The Commission and the High Representative consider that an important 
shift  of  decision-making  and  implementation  towards  the  regional  levels  will  be  required. 
Furthermore, future relations should link up ACP countries and neighbouring regions, which 
are not part of the current CPA, but play a key role in relation to achieving EU objectives. 

In preparation of the process leading to the definition of the EU-ACP relations after 2020, the 
Commission and the High Representative initiated a process of reflection in 2015 through a 

1 2007/483/EC OJ L 317, 15.12.2000 
2 Article 95.4 CPA 
3 Transforming our world: the 2030 agenda for sustainable development, United Nations A/RES/70/1  
4 Shared Vision, Common Action: A Stronger Europe. A Global Strategy for the European Union’s Foreign and 
Security Policy, 28 June 2016 http://europa.eu/globalstrategy/en/shared-vision-common-action-stronger-europe 
5 Proposal for a new European Consensus on Development, Communication (C(2016) 740 final) 

4 

 
 
                                                            
public  consultation.6  In  addition,  discussions  were  held  with  key  stakeholders  and  an 
evaluation  assessing  the  first  15  years  of  implementation  of  the  CPA  was  published  in  July 
2016.7  As  part  of  the  Impact  Assessment8  accompanying  this  Communication,  different 
options for the future relations have been examined. This work has formed the basis for this 
Communication. 

2. Strategic EU interests  

The  global  context  has  changed  significantly  since  the  start  of  the  Cotonou  Partnership 
Agreement in  2000, following on from the Lomé Convention’s  legacy dating  back to 1975. 
The  expiry  of  the  CPA  is  an  opportunity  to  make  the  partnership  fit  for  purpose  in  light  of 
today’s challenges in a changed world. Firstly, the Global Strategy for the EU’s Foreign and 
Security  Policy  has  set  the  scene  for  stronger  EU  action  in  the  world.  The  sustainable 
Development Goals (SDG) framework under the 2030 Agenda and the Addis Ababa Action 
Agenda9 have launched an ambitious and wide-ranging universal agenda for reform. 

This comes  at a time characterised by the persistent situations of fragility and vulnerability, 
the uneven progress within and between countries, and the rapidly growing negative effects of 
climate change and environmental degradation, which are undermining social and economic 
stability  in  various  parts  of  the  world.  In  particular,  a  high  number  of  ACP  States  face 
significant  problems  related  to  conflicts,  poverty,  unemployment  and  lack  of  decent  work, 
rising  inequalities,  human  rights  abuses,  corruption,  negative  impacts  of  climate  change, 
pressures  on  limited  natural  resources  and  degradation  of  ecosystems,  as  well  as  uneven 
integration into the global economy. Concentration of extreme and chronic poverty in fragile 
states  remains  a  reality.  Structural  and  recurring  crises  remain  the  source  of  severe 
humanitarian emergencies that are stretching the resilience of entire countries and societies. In 
addition, population growth is outpacing economic growth in many partner countries. All this 
hampers  sustainable  and  inclusive  growth  and  job  creation  needed  to  offer  a  positive 
perspective  and  genuine  opportunities  in  life,  in  particular  for  the  youth  and  the  most 
vulnerable people. 

This  challenging  environment  provides  a  fertile  ground  for  extremism,  terrorism  and  other 
forms  of  organised  crime,  including  human,  drug  and  firearms  trafficking  as  well  as 
cybercrime.  These  patterns  have  negative  spill-over  effects  on  the  security  and  economic 
prosperity of the EU and its citizens. It is also one of the root causes of irregular migration 
and forced displacement.  A clear framework is set by the European Agenda on Migration10, 

6 The Joint Consultation Paper JOIN(2015) 33 and its outcomes are available at: 
http://ec.europa.eu/europeaid/public-consultation-eu-acp-new-partnership_en 
7 The Evaluation of the Cotonou Partnership Agreement SWD(2016) 250 is available at: 
https://ec.europa.eu/europeaid/policies/european-development-policy/acp-eu-partnership-after-2020_en 
8Impact Assessment Joint Staff Working Document JOIN(2016)380) 
9 http://www.un.org/esa/ffd/wp-content/uploads/2015/08/AAAA_Outcome.pdf 
10  COM(2015)  240  final,  available  at:  http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-
agenda-migration/index_en.htm 

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the jointly agreed Valletta Declaration and Action Plan of November 201511, and also by the 
Communication on establishing a new Partnership Framework with third countries12 under the 
European Agenda on Migration. 

The  evaluation  of  the  CPA  shows  that  it  has  significantly  contributed  to  the  eradication  of 
poverty and to improved and more equitable access to basic services. However, the picture is 
mixed  as  regards  the  respect  of  the  essential  elements  (human  rights,  democratic  principles 
and the rule of law) by ACP partners. In addition, convincing and common answers to critical 
challenges such as migration and mobility have not been provided. 

At  the  same  time,  there  has  been  significant  economic  growth  in  many  ACP  countries. 
Growing connectivity, interdependence, scientific and technological advances and intensified 
trade have opened up new possibilities for increased global prosperity. More and more ACP 
economies offer a growing range of opportunities in terms of returns on investment, also for 
European companies. The evaluation of the CPA shows that it has allowed for progress on the 
integration of partner countries into the world economy. There has been an increase of trade 
flows to and from ACP countries as well as their growing World Trade Organisation (WTO) 
membership and their increasing role in international trade negotiations. The conclusion and 
implementation  of  Economic  Partnership  Agreements  have  been  important  milestones. 
However,  current  state  of  play  is  unsatisfactory  when  it  comes  to  increasing  economic 
diversification,  increasing  value  addition  and  reducing  dependency  on  a  narrow  range  of 
products, as well as redistribution of benefits leading to growing inequalities. 

Another  new  reality  that  has  emerged  relates  to  the  increased  regional  dynamics  and  the 
importance of regional organisations, and in the case of Africa, a continental organisation, the 
African  Union.  The  evaluation  of  the  CPA  shows  that  it  has  not  been  able  to  address  these 
important evolutions, which should be reflected in any future partnership decision making and 
institutional set-up. 

Finally,  partner  countries  play  an  increasingly  critical  role  in  addressing  global  challenges, 
which  by  definition  cannot  be  addressed  by  the  EU  alone.  In  this  regard,  climate  change 
remains one of the most pressing threats to the achievement of sustainable development in the 
EU and in the world. The rise of new powers, which do not always promote the same values 
and  agendas,  is  a  further  argument  to  increase  efforts  to  obtain  consensus  with  the  EU’s 
partners  on  key  issues  of  global  concern  and  to  drive  a  positive  agenda  forward  together. 
Enhanced dialogue and cooperation with ACP countries is therefore critical if the EU aims to 
influence and foster a multilateral rules-based order. However, the evaluation shows that the 
partnership has not sufficiently delivered on these objectives. When it comes to results, there 
has been a lack of responsiveness and real cooperation between partners on key international 
debates. 

11 Available at: http://www.consilium.europa.eu/en/press/press-releases/2015/11/12-valletta-final-docs/ 
12  COM(2016)  385  final,  available  at:  http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-
agenda-migration/proposal-implementation-
package/docs/20160607/communication_external_aspects_eam_towards_new_migration_ompact_en.pdf 

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These  challenges  and  opportunities  are  of  such  importance  over  the  medium  term  that  they 
require urgent decisive action with partners. 

It  is  in  the  EU’s  interest  to  seek  a  new  political  partnership  focussed  on  building  peaceful, 
stable, well-governed, prosperous and resilient states and societies at its borders and beyond. 
A  society  that  features  democracy,  trust  in  institutions  and  sustainable  development  is  the 
basis for a resilient state. 

It is also in the EU’s interest to seek a new political partnership that delivers on the objective 
of  a  multilateral  rules-based  order  addressing  global  challenges.  Successful  negotiations  on 
the Paris Climate Change Agreement13 have shown that building such strategic alliances does 
positively affect outcomes in international negotiations. 

To  deliver  on  these  EU  interests,  the  EU’s  response  strategy  should  focus  on  the  following 
specific priorities that are interdependent and mutually reinforcing: 

Specific priorities 

1 

Promote peaceful and democratic societies, good governance, the rule of law and human 
rights for all 

2  Spur inclusive sustainable growth and decent jobs for all  

3  Turn mobility and migration into opportunities and address challenges together  

4  Promote human development and dignity 

5  Protect the environment and fight climate change 

6 

Join forces in the global arena on areas of common interests 

The main building blocks for a future partnership are set out below. 

3. A political partnership built on specific priorities 

A  first  building  block  for  a  new  political  partnership  should  spell  out  commonly  agreed 
objectives, values, principles, and commitments. Subsequently, these need to be tailored to the 
different regions, to reflect their specificities. Reaching out to other interested partners beyond 
the ACP countries should actively be explored (see section 4.2.3). 

13  Paris 
FCCC/CP/2015/L.9/rev.1 

agreement  under 

the  United  Nations  Framework  Convention  on  Climate  Change 

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3.1 EU priorities towards partner countries 

3.1.1 Promoting peaceful and democratic societies, good governance, the rule of law and 
human rights for all 

The  future  partnership  should  be  based  on  a  shared  strong  commitment  to  promote  and 
respect  democratic  principles,  the  rule  of  law,  universal  human  rights  and  fundamental 
freedoms for all; respect for human dignity and the principles of equality and solidarity; and 
good governance. In particular, attention to gender equality, the most vulnerable people and 
youth  perspective  should  further  inspire  mutual  efforts  towards  democratic  governance  and 
human rights for all. In many partner countries, these elements are already firm or are taking 
root. However, progress is insufficient to allow sustainable development efforts to take hold. 

The EU promotes a rules-based global order to provide global public goods and contribute to 
a  peaceful  and  sustainable  world,  with  multilateralism  as  its  key  principle  and  the  United 
Nations (UN) at its core. The partnership should therefore be based on the full respect of the 
principles of the UN Charter and international law, and should play an active role within this 
framework. 

The partnership should promote peace, stability, and security, including human security and 
resilience, as a critical enabling condition for sustainable development and prosperity. There 
cannot be sustainable development without peace and security, and without development and 
poverty  eradication  there  will  be  no  sustainable  peace.  Fighting  destabilisation  and  its  root 
causes  is  also  key  for  the  EU’s  own  security  and  prosperity.  Security  at  home  depends  on 
peace beyond the EU’s borders. In this regard, the future partnership should reflect the need 
for  a  comprehensive  approach  to  conflict  and  crises,  including  prevention  and  resolution, 
addressing also military as well as civilian capabilities (and their interaction). It should take 
into  account  the  multiple  dimensions  and  acting  at  all  stages  of  the  conflict  cycle,  in  close 
cooperation with continental and regional organisations, as well as the UN. 

The  partnership  should  focus  on  delivering  the  rule  of  law.  This  is  a  fundamental  value,  a 
necessary  basis  for  sustainable  development,  a  key  component  in  preventing  conflict,  and  a 
foundation for successful cooperation in other areas of interest for the EU. To deliver on this 
value, a clear commitment must be made notably to promote effective and independent justice 
for  citizens  and  businesses.  Addressing  the  impunity  for  the  most  serious  crimes  of 
international concern, including by acknowledging the complementarity of roles between the 
national  criminal  jurisdictions  and  the  International  Criminal  Court  in  achieving  justice  and 
reconciliation,  is  also  needed.  The  fight  against  corruption  and  organised  crime  is  also 
essential to the effectiveness of democratic institutions, to a conducive business environment 
and to sustainable management of natural resources, including mineral resources. 

The  partnership  should  allow  undertaking  joint  action  in  addressing  increasingly  global 
security  threats  affecting  both  Europe  and  partner  countries,  in  particular  terrorism  and 
extremism as well as all forms of organised crime and illicit trafficking, including of human 
beings,  wildlife,  drugs  and  hazardous  materials.  It  should  also  encompass  the  promotion  of 
cyber security, the protection of critical infrastructure, as well as maritime and civil aviation 

8 

 
 
security.  The  partnership  should  equally  strengthen  the  joint  commitment  to  combat  the 
proliferation  of  weapons  of  mass  destruction,  including  control  of  dual  use  items,  and  fight 
the illicit manufacture, transfer, circulation, excessive accumulation, and uncontrolled spread 
of small arms and light weapons. 

The  partnership  should  foster  effective  action  at  all  levels  (local,  national,  regional, 
continental,  and  international)  and  it  should  ensure  systematic  engagement  with  all 
stakeholders  on  the  respect  of  the  principles  and  commitments  made.  The  new  partnership 
should build on the experience gained with political dialogue as a sound and flexible process 
for continuous, comprehensive, and broad engagement at all levels on all issues of interest. It 
should  maintain  the  recourse  to  intensified  political  dialogue  and  include  a  consultation 
procedure on sensitive issues relating to the respect for democratic principles, the rule of law, 
human rights for all and good governance, with the possibility of partial or full suspension of 
relations  as  a  measure  of  last  resort.  The  new  partnership  should  facilitate  increased 
engagement with a wide set of non-state actors, including civil society and private sector. 

3.1.2 Promoting inclusive sustainable growth and decent jobs for all 

Economic growth has been impressive in many partner countries over the last decade. Growth 
has often been fast, but from a low base, and economic diversification and sophistication are 
often weak in most countries. Most economies still remain very vulnerable to economic and 
natural shocks and do not provide for the necessary job creation. Furthermore, they are not yet 
transforming  sufficiently  towards  an  inclusive  sustainable  growth  path,  particularly  in  the 
field  of  sustainable  consumption  and  production  and  resource  efficiency.  The  integration  of 
ACP countries in the global economy through increased trade and linking up into global value 
chains,  has  not  reached  the  expected  level.  As  reflected  by  the  SDGs,  creating  inclusive 
sustainable growth and decent jobs is critical for the stability and prosperity for partners. It is 
important as well for the provision of positive spill-over effects towards the EU. Therefore, 
the partnership should particularly focus on key drivers for inclusive sustainable growth. 

The  promotion  of  macroeconomic  stability,  including  financial  system  stability,  remains  a 
prerequisite for inclusive sustainable growth. This is particularly relevant in the context of an 
increasingly  interconnected  economic  and  financial  world,  with  many  emerging  economies 
and  related  financial  markets.  Unsustainable  fiscal  and  current  account  deficits,  excessive 
fluctuations  in  exchange  rates  and  inflation  or  high  volatility  in  economic  activity  make  it 
difficult for investors to plan and anticipate economic opportunities. Such a context impedes 
the implementation of coherent policies and effective budget management by the government.  

The promotion of sound public finance management and efficient control of the use of public 
finance  is  critical  in  this  regard.  It  includes  the  promotion  of  effective,  efficient,  fair  and 
transparent  tax  systems  and  the  fight  against  fraud  and  illicit  financial  flows.  Sound  public 
finance management is a key element of good governance and a key basis for an effective and 
resilient  public  sector.  It  should  lead  to  increased  domestic  revenues  being  converted 
efficiently and effectively into public goods and services.  

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The  new  partnership  should  also  promote  a  stronger  role  for  the  private  sector  in  creating 
inclusive sustainable growth and jobs. This requires stronger action to improve the policy and 
regulatory framework, as well as the business climate. Particular attention should be given to 
the investment climate and addressing the need for increased investment. 

The  promotion  of  well-functioning  labour  markets  should  feature  prominently  in  the  new 
partnership. They are needed to ensure decent jobs for workers, including through transition 
from  the  informal  to  the  formal  economy  and  by  improving  labour  conditions,  health,  and 
safety at work, and access to social protection. 

Specific  attention  should  be  paid  to  a  sustainable  and  environmental  responsible  agri-food 
sector.  In  partner  countries,  this  sector  remains  a  fundamental  driver  for  sustainable 
development  and  in  particular  for  food  security,  employment  creation,  and  poverty 
eradication, while being particularly at risk from climate change. 

This  sustainable  approach  applies  also  to  fisheries  and  aquaculture  practices.  Better  global 
ocean governance is essential for boosting inclusive sustainable growth of maritime activities, 
while  ensuring  healthy,  clean,  and  safe  oceans.  In  this  regard,  the  partnership  should  act  to 
shape international ocean governance in the UN, as well as in other relevant multilateral fora. 
The common fight against illegal, unreported, and unregulated fishing should be strengthened. 

The development of infrastructure, including sustainable transport and energy networks, is a 
key driver for inclusive sustainable growth, in particular of those infrastructure necessary to 
boost  the  regional  economic  integration,  to  access  the  world  market,  to  unlock  critically 
isolated areas and to facilitate mobility in dense urban areas. Specific attention should be paid 
to  the  development  and  dissemination  of  information  and  communication  technologies,  by 
providing  affordable  connectivity  and  wider  access  to  digital  applications  for  all,  and  the 
promotion of science and technology and research and innovation, being critical as well for 
economic investment and accelerated development. 

The partnership should work towards providing universal access to clean, modern, affordable, 
secure  and  reliable  energy  services.  Energy  conservation,  efficiency  and  renewable  energy 
solutions should be promoted, also in view of the impact on climate related global challenges. 

In its quest for inclusive sustainable growth and job creation, the partnership should promote 
trade,  which  can  be  a  powerful  engine  for  economic  development,  contributing  also  to 
integration and political stability. Trade provides opportunities for EU and partner countries 
business  to  expand  their  markets  and  for  people  to  access  the  best  products  at  competitive 
prices. 

Future  trade  relations  with  partner  countries  should  be  conducted  in  line  with  multilateral 
rules.  WTO-compatible  Economic  Partnership  Agreements  (EPAs),  with  their  joint 
institutions  and  binding,  evolutionary  commitments,  should  continue  to  be  key  instruments 
for ACP-EU trade. The existing EPAs can be widened to include more countries within the 
EPA regions and deepened to include more substantive areas, upon the parties’ agreement. 

10 

 
 
Globalisation, the emergence of global value chains, and the growing importance of behind-
the-border issues require addressing all trade and trade-related areas in a holistic manner. The 
new partnership should therefore strengthen the parties’ cooperation and dialogue in trade in 
services  and  other  trade-related  areas,  such  as  elimination  of  non-tariff  barriers,  regulatory 
harmonisation, investment, competition policy, intellectual property rights and labour rights. 

While  each  EPA  involves  its  own  institutions  to  review  the  implementation  and  to  discuss 
trade  issues,  a  dialogue  on  trade  matters  and  cooperation  between  the  EU  and  the  partner 
countries  as  a  whole  should  continue  to  address  issues  of  common  interest,  particularly  in 
view  of  cooperation  within  the  WTO.  A  policy  dialogue  on  trade  should  also  continue  at 
national level, where appropriate. 

3.1.3  Turning  migration  and  mobility  into  opportunities  and  addressing  challenges 
together 

Migration  and  mobility  can  bring  important  benefits  to  the  EU  and  partner  countries,  if 
properly  managed.  The  CPA  has  been  lacking  sufficient  rapid  responsiveness  and  decisive 
action on this key challenge. The obligation of readmitting nationals in an irregular situation 
on the territory of the other party remained to a large extent unimplemented.  

In  the  future,  the  partnership  should  enhance  dialogue  and  cooperation  between  the  parties, 
addressing  all  aspects  of  migration  guided  by  the  principles  of  solidarity,  partnership,  and 
shared responsibility and mutual accountability in respect of human rights. It should build on 
the agreed principles and commitments of Article 13 of the CPA, broaden them to reflect the 
full  scope  of  migration  developments  and  EU  migration  policy,  and  develop  operational 
cooperation, particularly on enforcement mechanisms of agreed principles. It should integrate 
the  important  policy  developments  such  as  the  European  Agenda  on  Migration  and  related 
Partnership  Framework  which  aim  at  helping  to  respond  to  crises  through  immediate  and 
measurable results, but also lay the foundations of an enhanced cooperation with countries of 
origin, transit and destination with a well-managed migration and mobility policy at its core. 
It should take into account as well the Valletta Summit Declaration and Action Plan. Partner 
countries will be supported in their efforts to develop effective migration and asylum policies. 
It  is  necessary  to  tackle  the  root  causes  of  irregular  migration  and  forced  displacement  by 
applying  sustained,  short,  medium-,  and  long-term  policies,  and  to  better  use  existing 
processes.  The  partnership  should  also  engage  on  the  protection  of  refugees  and  asylum 
seekers, with particular attention paid to vulnerable groups. It should promote the resilience of 
long-term  forcibly  displaced  persons  and  their  inclusion  in  the  economic  and  social  life  of 
host countries. 

The EU should seek specific commitments with partner countries to prevent and address more 
efficiently irregular migration, including the prevention and fight against trafficking in human 
beings, the smuggling of migrants and related criminal networks and raising awareness about 
the  risks  of  irregular  migration.  Building  on  the  principles  and  commitments  of  Article  13 
CPA, it is necessary to agree on mechanisms to improve return and readmission cooperation 
and operational implementation of international obligations to readmit own citizens with  no 
legal right to stay in the EU. 

11 

 
 
At  the  same  time,  it  is  necessary  to  harness  the  opportunities  related  to  migration,  such  as 
remittances  or  ’brain  circulation’,  which  can  provide  an  important  positive  contribution  to 
inclusive sustainable growth and development in EU and partner countries. Therefore, the EU 
is  committed  to  harness  these  opportunities  through  enhanced  legal  migration  and  mobility, 
especially for educational, scientific, cultural, training, and professional purposes, which can 
have a positive effect on economies and societies alike. 

3.1.4 Ensuring human development and dignity 

The  partnership  should  work  towards  increased  prosperity  of  its  people  by  fulfilling  the 
SDGs. The EU should seek a strong political engagement with partner countries in order to 
meet the needs of all, in particular among the poorest and most vulnerable, ensuring that all 
human beings can fulfil their potential in dignity and equality and in a healthy environment. It 
should  support  reforms  to  eradicate  poverty,  tackle  inequalities,  prevent  vulnerabilities  and 
ensure equitable access to decent work and social services, in particular quality education and 
health,  and  social  protection.  Actions  towards  poverty  eradication  should  be  focused  on  the 
poorest  and  most  vulnerable  countries  including  Least  Developed  Countries  (LDCs)  and 
fragile and conflict-affected countries, where difficulties are expected to persist compounded 
by  demographic  factors,  and  where  a  stronger  focus  on  human  development  remains 
essential.The  partnership  should  contribute  to  strengthen  resilience,  and  address  chronic 
vulnerability,  by  enhancing  the  synergies  between  life  saving  assistance  and  long  term 
development needs.  

The  EU  should  insist  on  a  joint  commitment  to  fully  protecting,  promoting,  and  realising 
gender  equality  and  empowerment  of  women  and  girls.  The  EU  also  wants  to  see  a  joint 
recognition of the key contribution of women and girls to peace and state-building, economic 
growth, technological development, poverty reduction, health and well-being, and culture and 
human development. Gender equality is important for sustainable development, as underlined 
in the 2030 agenda. 

Young people are the engine for the future social, economic, and environmental well-being of 
their communities. Their  contribution is  essential  to  fully exploit the opportunities given by 
scientific  and  technological  progress  (e.g.  digital  revolution)  and  strengthen  democratic 
institutions and values through time. Access to high quality and effective education and skills 
development will be crucial for employability, societal development, and resilience. 

Furthermore,  the  partnership  should  take  up  a  common  commitment  to  foster  inter-cultural 
dialogue, protect cultural diversity, and develop cultural and creative industries. Culture is a 
powerful  tool  to  build  bridges  between  people,  notably  the  young,  and  reinforce  mutual 
understanding.  It is also  an  important  mean  to  fight  violent  radicalisation  and  an engine  for 
economic and social development. 

12 

 
 
3.1.5 Protecting the environment and tackling climate change  

Sustainable  development  and  human  well-being  depend  on  healthy  ecosystems  and  a 
functioning  environment.  Climate  change  and  environmental  degradation,  threaten  to  offset 
economic progress, jeopardise peace and stability and cause large-scale migration.  

The  partnership  should  therefore  focus  on  reaching  the  relevant  SDGs  (e.g.  clean  energy, 
sustainable  cities  and  communities  and  responsible  consumption  and  production)  and  the 
implementation of the Paris Agreement on climate change. It should enshrine a commitment 
to pro-poor climate resilience policies, and scale up the transformation to inclusive green and 
blue economies, in particular through the adoption of sustainable consumption and production 
practices  by  a  responsible  private  sector.  It  should  contain  strong  commitments  on  the 
sustainable management of natural resources including forests, wildlife and mineral resources, 
and the conservation, valuation and sustainable use of ecosystems and biodiversity, including 
oceans, and the implementation of mitigation and adaptation policies. Secure and fair access 
rights are also needed to achieve good stewardship of natural resources. Better preparedness, 
reduced  exposure  to  vulnerability,  and  ability  to  recover  from  disasters  are  key  to  avoiding 
loss of lives and livelihoods. 

The  2030  Agenda  requires  urgent  efforts  by  all  on  global  public  goods,  including  low 
emissions  and  low-carbon  economies.  The  new  partnership  should  reflect  the  strong 
commitment  of  partners  and  their  regional  organisations  to  implement  efficient  sustainable 
energy  policies  that  meet  the  greenhouse  gas  emission  reduction  objectives.  Energy 
production has a direct link to the climate change challenge and sustainable development. The 
parties have vital interests  to  transform this sector,  phasing out  the use  of  fossil fuels  while 
further  mobilising  the  indigenous  renewable  resources  and  improving  energy  efficiency  in 
partner countries, to leapfrog towards sustainable and modern energy services and to decouple 
economic growth from the growth in energy consumption. Furthermore, co-operation in this 
sector  should  promote  high  nuclear  safety  standards.  To  help  ensure  this,  the  EU  should 
continue  to  work  with  partner  countries  to  foster  an  enabling  regulatory  environment  and 
sector  reforms.  The  partnership  should  provide  a  more  strategic  and  tailored  approach  to 
investment in sustainable energy, with an important role for private investments and modern 
technologies,  to  boost  the  transformation  of  energy  production  and  consumption  patterns 
across partner countries. 

Sustainability also requires partners to commit to address the challenges of urban life, where 
the  impact  of  a  major  population  shift  calls  for  a  significant  change  towards  smart  and 
sustainable cities away from traditional urban policy-making. 

3.1.6 Alliance on common challenges 

The partnership should enable the EU and its partners to join forces more effectively to drive 
forward  a  common  agenda  in  global  and  multilateral  fora.  The  potential  in  this  regard  has 
barely been exploited and much more concrete results should be delivered. Cooperation in the 
international arena should be an area where a new partnership can provide a substantial added 
value. 

13 

 
 
The  basis  for  stronger  action  is  a  renewed  commitment  to  promote  rules-based  effective 
multilateralism, with the UN at its core. The partnership should support global governance by 
seeking  to  reform,  implement,  and  develop  multilateral institutions,  agreements,  and  norms. 
Such a commitment to global governance must translate into increased dialogue and effective 
cooperation  within  international  fora  (including  UNSC,  UNGA,  UNHRC,  UNFCCC)14,  as 
well as in the determination to reform the UN, including the Security Council.  

Building  on  the  experience  of  the  high  ambition  coalition  process  that  paved  the  way  at 
COP 2115  for  the  2015  Paris  Agreement  on  climate  change16,  the  partnership  must  actively 
identify  topics  where  the  EU  and  partner  countries  have  major  common  interests  and  could 
drive  forward  global  action.  This  should  translate  into  joint  action  at  decision-making 
moments. A  process should  be defined to  identify on a regular  basis at  the  highest  political 
level  the  common  interests,  allowing  for  a  timely  preparation  and  coordinated  action  and 
voting in the relevant international formats and frameworks. Areas to be considered include, 
among others: climate change, sustainable development, blue and green economy, protection 
of  biodiversity,  global  digital  economy,  fight  against  illicit  financial  flows,  and  the  proper 
functioning  of  commodity  markets.  The  partnership  should  equally  seek  to  further  common 
interests at the WTO. There is also scope for closer cooperation in the international financial 
institutions. 

In  order  to  strengthen  such  strategic  alliances  in  the  international  arena,  the  reaching  out  to 
countries beyond the ACP, in North Africa, among LDCs and Small Island Developing States 
(SIDS) should be promoted. 

3.2. EU priorities tailored to the regions 

The partnership priorities should be pursued everywhere. At the same time, to ensure effective 
implementation,  the  partnership  should  properly  take  into  account  the  regional  specificities 
and partners' own development frameworks and the different priorities of the EU’s common 
agenda  with  partners  in  Africa,  the  Caribbean,  and  the  Pacific.  For  each  of  the  regions,  the 
priorities  can  be  tailored  to  the  circumstances  and  fine-tuned  by  specifying  the  related 
objectives and actions that are envisaged. 

3.2.1 Africa 

Africa  is  a  continent  of  immense  opportunity.  By  2050,  it  will  be  home  to  nearly  25%  of 
world’s population. It hosts some of the fastest growing  economies in the world,  as  well as 
extensive  natural  and  agricultural  resources.  It  has  huge  potential  for  trade,  innovation,  and 
investments, and this is also what the continent aspires to. In most African countries, the EU 
is  the  first  partner  in  politics,  aid,  trade,  and  investment.  Over  the  past  years,  the  EU  and 
Africa have built a deeper, more political partnership based on shared values and interests. An 

14 United Nations Security Council, United Nations General Assembly, United Nations Human Rights Council, 
United Nations Framework Convention on Climate Change 
15 http://www.cop21paris.org/about/cop21  
16 http://unfccc.int/paris_agreement/items/9485.php  

14 

 
 
                                                            
increasing number of African governments and regional organisations are taking a lead role in 
addressing  the  political,  security  and  economic  challenges  within  their  borders  and  beyond. 
The African Union and its Agenda 206317 provide for an ambitious aspirational momentum. 

Africa’s  potential  will  depend  on  African  countries’  efforts  related  to  governance,  human 
rights,  conflict  prevention  and  resolution,  fight  against  organized  crime,  and  inclusive 
sustainable  growth  and  jobs  creation.  Various  countries  still  lack  the  ability  to  reform  and 
recover  from  crises.  In  other  words,  they  lack  resilience  and  suffer  from  fragility.  Poverty, 
unemployment, and inequality remain high and the pace of reduction slow. Population growth 
adds a massive challenge to this all. Furthermore, many countries remain mired in long-term 
conflict,  while  transnational  security  challenges  pose  threats  to  regional  stability  and 
sustainable development. Environmental degradation and the impacts of climate change also 
threaten  to  offset  economic  progress  and  jeopardise  peace  and  stability.  All  this  fuels 
increased  humanitarian  emergencies,  forced  displacement  flows  and  irregular  migration, 
within the regions and towards Europe.  

Boosting  the  opportunities  and  addressing  the  challenges  is  key  for  Africa’s  and  the  EU’s 
security  and  prosperity.  Therefore,  taking  into  account  the  EU  priorities  and  Africa’s  own 
commitments  and  reform  agenda,  as  well  as  building  on  the  basis  laid  down  in  the  Joint 
Africa  EU  Strategy  (JAES)18,  the  following  objectives  should  be  at  the  heart  of  a  renewed 
partnership with African countries. 

a. Peace and security, stability, democracy, the rule of law, good governance and human 
rights 

Investing  in  African  peace,  stability,  and  development  not  only  benefits  our  partners  but  is 
also  an  investment  in  the  EU’s  own  security  and  prosperity.  Conflict  and  fragility remain  a 
massive impediment to African development. In this regard, one has to reach out as well to 
non-ACP countries on key issues such as stabilisation, security and building resilience.  

Specific objectives 

- Promote an integrated approach to conflict prevention and resolution, peace-building and 
human  security  at  national,  regional,  and  continental  levels,  with  increased  African 
ownership, responsibility, solidarity, and capacities. 

- Advance  security,  including  maritime  security,  cooperation,  and  security  sector  reforms, 
through  deepened  security  partnerships  at  country,  regional  and  continental  level  and  in 
close  cooperation with  the UN. The operationalisation of the African  Peace and Security 
Architecture (APSA)19 is a key objective to achieve.  

17 Agenda 2063 The future we want for Africa – agenda2063.au.int 
18  The  Africa-EU  Strategic  Partnership 
partnership.org/sites/default/files/documents/eas2007_joint_strategy_en.pdf 
19 www.peaceau.org/en/page/104-african-peace-and-security-architecture-apsa 

-  A 

Joint  Africa  EU  Strategy  –  www.africa-eu-

15 

 
 
                                                            
- Promote democracy and commit to respect for democratic principles, the constitution and 
the  election  cycle  and  results.  In  this  regard,  it  will  be  important  to  have  continued 
engagement with and support to the African Governance Architecture20 and to democratic 
institutional  development  at  local,  national  and  regional  level,  in  particular  through  the 
the  African  Charter  on  Democracy,  Elections  and  Governance21. 
application  of 
Furthermore,  there  should  be  a  strengthened  focus  on  facilitating,  preserving,  and 
broadening the space for civil society engagement in advocacy and policy shaping, as well 
as on supporting a stronger dialogue with local authorities. 

- Promote the rule of law and good governance, including effective and independent justice 
for  citizens  and  businesses.  Sound  public  finance  management  remains  a  key  element  of 
good governance and a key basis for macro-economic stability and a resilient public sector. 

- Promote and protect human rights, including by supporting the work of and taking forward 
dialogue  with  relevant  human  rights  institutions  from  both  continents,  with  relevant 
national institutions (e.g. national parliaments) as well as civil society and local authorities. 

- Promote and protect humanitarian principles and International Humanitarian Law. 

- Promote fight against organised and transnational crime, terrorism and radicalisation, and 
illicit  trafficking  in  human  beings,  wildlife,  drugs  and  hazardous  materials  and  related 
illicit financial flows. 

b. Mutual economic opportunities for sustainable development 

Fostering inclusive sustainable growth will allow Africa to take advantage of its demographic 
evolution and turn it into an opportunity, with positive spill-over effects for the EU. 

Specific objectives 

- Promote decent employment opportunities, in particular for young people and women. 

- Ensure  an  enabling  environment  for  trade  and  responsible  investment,  private  sector 
development,  with  a  particular  attention  to  the  agri-food  sector  on  which  a  majority  of 
African’s depend for their livelihoods. 

- Promote the effective implementation of the Economic Partnership Agreements (EPAs) in 
Africa, in order for economic operators to reap the full benefits offered by the agreements. 

- Make  progress  on:  African  regional  integration,  at  continental  and  regional  level,  in  line 
with Africa’s Agenda 206322 and the objectives set by the various regions, with a particular 
focus on trade facilitation, customs modernisation and standards harmonisation; regulatory 
coherence; and  sustainable,  efficient  infrastructure  that  facilitates  interoperability,  inward 
investment and access to regional and global markets. 

20 Aga-platform.org 
21Au.int/en/treaties/African-charter-de;ocracy-elections-and-governance 
22 http://agenda2063.au.int/  

16 

 
 
                                                            
- Bolster new investment opportunities, including high quality investments that will leverage 
additional  resources  from  capital  markets,  and  promote  partnerships  between  private 
operators  on  both  continents  and  build  on  initiatives  such  as  the  EU-Africa  Business 
Forum. 

- Promote  green  and  blue  economy  and  environment-friendly  models  to  foster  inclusive 
sustainable  growth  and  decouple  it  from  environmental  degradation,  in  particular  by 
promoting sustainable consumption and production patterns.  

- In  view  of  the  implementation  of  the  Paris  Agreement,  ensure  universal  access  to 

affordable, reliable and modern energy to power inclusive sustainable growth.  

c. Migration and mobility management 

To seize the benefits and manage the challenges of migration, a more coordinated, systematic 
and  structured  approach  is  required,  matching  the  EU  and  African  interests.  Order  in 
migration flows  must be restored while facilitating mobility on the basis of a well-managed 
rights-based  approach  to  migration,  in  line  with  the  European  Agenda  on  Migration  and  its 
new partnership framework with third countries, the 2014 EU-Africa Migration and Mobility 
Declaration, and the Valletta Summit Declaration and action plan.  

Specific objectives 

-  Promote  the  conception  and  implementation  of  migration  policies,  through  promoting 
regular channels and tackling irregular migration flows, including return and readmission. 

-  Better organise intra- and inter-regional labour mobility, facilitating institutional dialogue 
and  cooperation  along  the  migratory  routes,  and  facilitating  ’brain  circulation’  though 
recognition  of  skills  and  qualification,  dialogue  on  visas,  and  promotion  of  students, 
researchers and academic mobility. Reduce the cost of remittances  and  enhance the role 
and engagement of the diaspora. 

- Tackle irregular migration by putting in place adequate prevention measures, including the 
fight  against  human  trafficking  and  smuggling  of  migrants  through  integrated  border 
management and the promotion of alternatives to irregular migration. 

- Address more effectively and efficiently return, readmission and reintegration challenges. 
Strong  commitments  on  both  sides  with  operational  cooperation  need  to  be  made.  In 
particular on readmission, the existing provisions of Article 13 of the Cotonou agreement 
need to be strengthened and made enforcable.  

- Address  forced  displacement  and  promote  international  protection  based  on  the  principle 
of responsibility sharing, by helping preserve and enhance human capital of those forced to 
flee  their  homes,  help  ensure  their  protection  and  ultimately  provide  developmental 
benefits  for  the  displaced  and  their  hosts.  This  is  valid  for  both  populations  fleeing  their 
country and internally displaced people. 

17 

 
 
 
d. Human development 

Poverty, poor skills development, and inequality remain great challenges, which improve only 
slowly. Strong population growth in Africa adds to this challenge. 

Specific objectives 

-  Empower women, youth and vulnerable groups, by promoting equal access to quality 

education and vocational training, social protection, health including reproductive health 
care and representation in political and economic decision-making processes for women 
and girls and an enabling environment for youth to fulfil their potential, enjoy their human 
rights and engage as responsible actors. 

-  Tackle  social  and  economic  inequalities  through  fiscal,  wage  and  social  protection 
policies,  including  guaranteeing  access  to  essential  quality  social  services  for  all  and 
promoting a nationally defined minimum level of income. Emphasis should be also put on 
ensuring food security, through increasing investment in rural infrastructure, agricultural 
research, technology development and social innovation. 

- Promote  knowledge  development 

through  providing  quality  education, 

including 
vocational education and training and skills development in line with labour market needs, 
and actively promoting the digital economy and society, science and technology, research 
and innovation, in order to significantly improve the lives of people and the employability 
of the local workforce in a sustainable manner in both urban centres and rural areas. 

- Address  vulnerability  to  macroeconomic  and  other  shocks  such  as  health  threats  and 
outbreaks,  strengthen  health  systems  to  pursue  uiversal  health  coverage and  quality care; 
and  prevent  and  reduce  the  burden  of,  disease,  poor  nutrition,  food  shortages,  natural 
disasters and climate change.  

- Increase  access  to  drinking  water  and  sanitation  and  promote  the  availability  and  the 
sustainable  management  of  water  resources  and  prevent  the  spread  of  communicable 
diseases.  Advance  the  conservation,  restoration  and  sustainable  use  of  ecosystems  and 
natural resources and the implementation of nature-based solutions.  

- Make cities and human settlements inclusive, safe, resilient, and sustainable. 

3.2.2 Caribbean 

The EU and the Caribbean share a long history, culture and a broad base of common values. 
Through its outermost regions, and associated overseas countries and territories (OCTs), the 
EU  is  also  physically  part  of  the  Caribbean.  Caribbean  countries  share  a  number  of  EU 
political  objectives  and  face  a  number  of  challenges  which  the  EU  has  an  interest  in 
addressing  (such  as  climate  change,  crime  and  other  security  challenges,  environmental 
preservation), some of which offer opportunities for market access (e.g. sustainable energy). 

18 

 
 
 
Taking into account the EU priorities and the specific context, as well as building on the basis 
laid down in the joint EU-Caribbean strategic partnership, the following objectives should be 
at the heart for a renewed partnership with Caribbean countries. 

a. Peace and human security, democracy, the rule of law,  good governance  and human 
rights  

The Caribbean is a stable region where most countries feature well-functioning democracies, 
although  good  governance  and  the  respect  of  human  rights  are  uneven.  Protection  and 
promotion  of  human  rights  and  democratic  practices  is  key  for  the  region's  stability  and 
prosperity.  It  is  also  important  in  view  of  the  number  of  associated  overseas  countries  and 
territories and of the EU outermost regions. The Caribbean is also located geographically on 
the  drug  routes  to  North  America  and  Europe.  The  fight  against  transnational  crime  and 
terrorism  financing,  against  tax  avoidance  and  money  laundering  practices  and  need  for 
increased financial transparency, are key challenges for both regions. 

Specific objectives 

- Consolidate the functioning of democratic institutions and enhance the rule of law, access 
to effective and independent justice, and human security. This needs to be complemented 
by  a  preventive  approach  focussing  on  addressing  root  causes  including  poverty,  social 
exclusion, discrimination, and impunity. 

- Improve  the  protection  and  promotion  of  human  rights  for  all.  The  focus  should  be  on 
promoting gender equality and indigenous rights, on combatting domestic violence, child 
abuse  and  corporal  punishment,  human  trafficking  and  discrimination  against  minorities, 
on  improving  prison  conditions  and  police  behaviour,  as  well  as  on  addressing  the death 
penalty issue. 

- Promote  good  economic  governance  including  sound  public  finance  management, 
transparency, and accountability. This includes strengthening the fight against corruption, 
money laundering, and illicit financial flows and tax havens. 

b. Regional integration, inclusive sustainable growth, trade and job creation 

All  countries,  except  Haiti,  have  transitioned  to  a  status  of  middle  to  high-income. 
Nevertheless,  the  economies  are  generally  characterised  by  narrow  domestic  markets,  high 
level  of  debts,  an  undiversified  productive  base,  which  limit  their  resilience  to  external 
shocks. 

Specific objectives 

-  Make  further  progress  on  regional  integration  and  cooperation  initiatives  and  policies, 
including  the  development  of  infrastructure  networks  and  interconnectivity  to  facilitate 
intra-regional and international trade and mobility. 

-  Prioritise job creation and harness private sector investments by creating a favourable 
international 

environment, 

integration 

enhancing 

business 

regional 

and 

19 

 
 
competitiveness, promoting corporate social responsibility and best business practices, 
including digitalisation, and supporting the development of small- and medium-sized 
enterprises (SMEs), including in the social and solidarity economy. 

-  Promote  the  effective  implementation  of  the  CARIFORUM-EU  Economic  Partnership 
Agreement,  in  order  for  economic  operators  to  reap  the  full  benefits  offered  by  the 
agreement. 

-  Strengthen  wider  regional  and  south-south  initiatives  with  Latin  America  and  with  the 
EU  outermost  regions  and  associated  OCTs  in  order  to  facilitate  closer  hemispheric 
cooperation and trade. 

c. Human development  

Human  development  indicators  have  improved  in  most  Caribbean  countries  over  the  last 
decades.  Despite  these  positive  developments,  poverty  and  extreme  poverty  in  Caribbean 
countries,  particularly  in  Haiti,  persists.  This  is  linked  to  extreme  social  and  economic 
inequalities. 

Specific objectives 

-  Undertake  efforts  at  all  levels  in  view  of  eradicating  poverty,  tackling  inequalities  and 

promoting decent work for all. 

-  Promote  access  for  all  to  quality  health  and  social  services,  including  universal  health 
coverage, increase cooperation in the area of education, life-long learning, workforce and 
training with a view  to  develop adequate skills for the labour  market and prevent brain 
drain. 

-  Improve food security and nutrition and promote sustainable value-added agriculture and 
agro-industry,  with  a  focus  on  smallholder  farmers,  as  a  way  to  diversify  Caribbean 
economies and avoid that small producers lose their livelihoods. 

d. Climate change and sustainable management of natural resources  

Caribbean  countries  are  all  SIDS  characterised  by  low-lying  coastal  territories,  highly 
exposed  to  natural  disasters  including  earthquakes,  hurricanes,  and  the  impact  of  climate 
change, including rising sea levels caused by climate change. Being highly vulnerable to the 
effects of climate change and having at the same time a narrow economic base, they lack the 
resilience  to  cope  with  the  rising  impacts  of  natural  disasters,  biodiversity  degradation,  or 
water  scarcity.  Caribbean  islands  are  also  heavily  dependent  on  imported  fossil  fuels  while 
they have abundant natural resources and opportunities to develop renewable energy sources. 

Specific objectives 

- Facilitate dialogue and common approaches in order to strengthen resilience and capacity 
of the Caribbean region to mitigate and adapt to the consequences of, and threat posed by, 
climate change and disasters, including in the area of disaster risk reduction. 

20 

 
 
- In  view  of  the  implementation  of  the  Paris  Agreement,  enhance  the  development  of 
renewable  power  generation  and  energy  efficiency  measures  through  transfer  of  best 
practices  and  promotion  of  investment  opportunities  in  clean  energy  infrastructure  and 
technologies. 

- Support  the  implementation  of  policies  that  contribute  to  creating  a  green  and  blue 

economy and encourage sustainable production and consumption patterns. 

- Protect  and  restore  land  and  marine  biodiversity  and  coastal  ecosystems  for  the 
preservation  of  biodiversity,  as  well  as  the  sustainable  use  of  its  natural  resources, 
including through nature-based solutions and ecosystem services. 

- Enhance  cooperation  in  the  area  of  water  resources  management,  including  providing 
access  to  safe  water,  sanitation  and  increase  water  use  efficiency;  improve  waste 
management systems, recycling and re-use. 

3.2.3 Pacific 

The EU and the Pacific share a long history, strong current ties, and a broad base of common 
values. Beyond these bilateral ties, the large number of island nations and their huge maritime 
territories  make  the  Pacific  an  important  player  for  the  EU  in  tackling  global  challenges. 
Pacific countries and territories share some major challenges, particularly with respect to their 
vulnerability  to  natural  disasters  and  climate  change,  as  well  as  some  general  development 
objectives linked to their small size and geographic isolation. 

The Pacific is home to about 500,000 EU citizens (around 5% of the total population of the 
Pacific).  Besides  supporting  OCTs  worldwide,  the  EU  supports  the  integration  of  OCTs 
within  the  Pacific  region,  with  a  view  to  maximising  their  potential  contribution  to  the 
sustainable  development  of  their  region  and  also  to  benefit  from  regional  integration.  New 
Caledonia and French Polynesia were admitted in September 2016 as members to the Pacific 
Island Forum, the main regional political body for the Pacific. 

Taking into account the EU priorities and the specific context, as well as building on the basis 
laid  down  in  the  EU  strategy  for  a  strengthened  partnership  with  the  Pacific,  the  objectives 
below should be at the heart for a renewed partnership with Pacific countries. In addition to 
these  specific  objectives,  the  renewed  EU  Pacific  partnership  should  recognise  and  support 
Pacific  countries'  efforts  regarding  regional  integration,  not  only  within  the  Pacific  region 
itself  but  also  –  where  aimed  for  by  individual  countries  –  into  the  Asia-Pacific  region, 
notably  with ASEAN as well as  helping Pacific countries deal with  security challenges  that 
may emerge over the coming decades .  

a. Good governance, human rights and gender 

Notwithstanding  substantial  progress  made  over  recent  decades,  remaining  weaknesses  in 
terms of good governance at national and regional level and the need for further progress in 
protection of human rights and gender equality, is holding back the regions’ development. 

21 

 
 
Specific objectives 

-  Ensure ratification and implementation of core UN human rights conventions, bearing 
in  mind  that  the  limited  implementation  of  relevant  conventions  is  often  due  to  the 
lack of adequate administrative structures rather than of political will. 

-  Promote  the  effective  protection  of  human  rights,  with  a  focus  on  fighting  gender-
based  violence  and  the  promotion  of  children’s  rights,  through  advocacy  and 
education interventions.  

-  Promote good governance including sound public finance management, transparency 
and  accountability,  addressing  also  emerging  challenges  such  as  tax  havens  and 
money  laundering.  Contribute  to  further  consolidate  the  rule  of  law  and  access  to 
effective and independent justice. 

-  Strengthen  the  role  of  civil  society  organisations,  particularly  in  the  promotion  of 

fundamental values and improving gender equality. 

-  Enhance  policy  and  political  dialogue  implementation  with  results  at  local,  national 

and regional level. 

b. Inclusive sustainable growth 

The  Pacific  region  comprises  of  large  exclusive  economic  zones,  with  vast  maritime 
resources. About one third of tuna globally is fished in the Pacific. While a modest actor in 
Pacific tuna fishing, the EU remains the largest fisheries consumer in the world. The EU is a 
very important export market, particularly for the Pacific fisheries products. For these reasons, 
the EU has an interest to bring forward the international fight against illegal, unreported, and 
unregulated fishing in the region, to maintain healthy fish stocks for future generations. 

Oceanic  resources,  however,  are  not  limited  to  fisheries.  There  are  great  opportunities  in 
sustainable blue and green economy development. The EU has an interest in improving ocean 
governance to ensure the sustainable use of oceanic resources23. 

Furthermore, other parts of the private sector, such as tourism, should be developed as to 
provide inclusive sustainable growth and job opportunities. 

Specific objectives 

-  Ensure  the  effective  implementation  of  Economic  Partnership  Agreements  with 

countries in the regions applying it. 

-  Enhance  private  sector  development,  in  particular  SMEs  and  improve  conditions  for 

investment. 

23  Joint  Communication  on  International  ocean  governance:  an  agenda  for  the  future  of  our  oceans  - 
http://ec.europa.eu/maritimeaffairs/sites/maritimeaffairs/files/join-2016-49_en.pdf 

22 

 
 
                                                            
-  Strengthen  regional,  national  and  local  initiatives  promoting  sustainable  fishing  and 
the implementation and respect of the UN Convention of the Law of the Sea24, and its 
implementing  agreements,  and  of  other  relevant  international  conventions.  Develop 
and  promote  ocean  governance  and  foster  blue  and  green  economy  initiatives  as  the 
safe exploitation of deep-sea mining involving all stakeholders concerned. 

-  Promote decent employment opportunities, in particular for young people and women. 

c. Climate change and sustainable management of natural resources 

Climate  change  is  a  central  concern  for  both  the  EU  and  the  Pacific  partner  countries  and 
territories.  

Specific objectives 

- 

- 

Improve preparation for and recovery from natural disasters, such as tropical cyclones, to 
build up resilience against these occurrences. 

In  view  of  the  implementation  of  the  Paris  Agreement,  enhance  the  development  of 
renewable  energy  generation  and  energy  efficiency  measures  through  transfer  of  best 
practices,  including  in  the  area  of  maritime  transport,  and  the  promotion  of  investment 
opportunities in clean energy infrastructure and technologies. 

-  Support the implementation of policies that contribute to creating a green economy (e.g. 
through  sustainable  rural  development  and  climate  change  resilient  agriculture  and 
forestry) and encourage sustainable production and consumption patterns. 

-  Enhance  environmental  protection  and  sustainable  use  of  natural  resources,  including  in 

waste management and in water, sanitation and health. 

-  Protect  and  restore  land  and  marine  biodiversity  and  coastal  ecosystems  for  the 
preservation  of  biodiversity,  as  well  as  the  sustainable  use  of  its  natural  resources  and 
ecosystem services. 

4. A more targeted and flexible partnership  

To deliver on the strategic interests, the EU must define how to further improve the way in 
which  the  relations  with  its  partners  in  Africa,  the  Caribbean  and  the  Pacific  should  be 
organised  and  governed.  This  building  block  for  a  political  partnership  touches  upon  many 
aspects, which will require extensive consultations with partner countries as well. It concerns 
the  format  of  the  relations,  the  actors  to  be  involved  and  the  principles  on  which  to  base 
cooperation, the mechanisms needed to deliver better, as well as the appropriate institutional 

24  UN  Convention 
http://www.un.org/depts/los/convention_agreements/convention_overview_convention.htm 

10  December 

Law 

Sea, 

the 

the 

of 

of 

1982 

available 

at: 

23 

 
 
 
 
 
 
                                                            
set-up  and  legal  status  in  support  of  the  implementation  of  the  partnership.  In  this  regard, 
there are important lessons learned from the CPA that need to be taken into account. 

4.1 Lessons learned 

The  evaluation  of  the  CPA25  underlines  a  number  of  strengths  and  weaknesses.  The 
evaluation  points  to  progress  on  poverty  eradication  and  human  development  in  ACP 
countries,  to  increased  trade  flows,  to  the  strengthening  of  peace  and  security  and  the 
reinforcement  of  democracy  and  human  rights.  However,  important  efforts  are  still  needed, 
not  least  because  some  of  these  achievements  are  under  threat  by  the  emergence  of  new 
sources of instability (e.g. demographic boom, authoritarian governments and terrorism, and 
climate change). 

Political dialogue (Article 8 CPA) and consultations / appropriate measures (Article 96 CPA) 
have  proven  to  be  useful  tools,  even  if  the  full  potential  has  remained  partially  untapped. 
Mixed results have been achieved in different domains, including: human rights, democracy, 
good governance  and the  rule of law (Article 9),  migration (Article 13)  and involvement  of 
state and non-state actors (Article 6). 

Furthermore, the evaluation points to the fact that the CPA has not been able to sufficiently 
capture  the  intensification  of  regional  dynamics  and  the  growing  heterogeneity  of  partner 
countries  as  e.g.  between  those  most  in  need  (LDCs,  fragile  countries),  as  well  as  those  of 
more  advanced  countries  (Middle  Income  Countries,  etc.).  The  regional  and  continental 
organisations established by partner countries are gradually emerging as regional actors that 
encompass political and security as well as trade and development mandates. 

The evaluation underlines also that the current institutional set-up and it’s functioning, as well 
as some operational processes, show important inefficiencies. 

Finally, cooperation between the EU and its partners in multilateral fora has hardly been used. 
It  was  only  introduced  in  the  2010  revision  of  the  CPA  and  led  to  positive  outcomes  in 
particular  on  the  Paris  Agreement  on  climate  change  negotiations,  but  most  often,  the 
partnership was not able to use all its weight to influence the outcome. Progress in this field 
will require the partner countries to demonstrate their commitment to the objectives they have 
set themselves at the ACP Port Moresby Summit.26 It also calls for the EU to seek ways of 
creating flexibility to build alliances including ACP and non-ACP States, such as all LDCs or 
SIDS. 

25 Joint Staff Working Document: Evaluation of the Cotonou Partnership Agreement (SWD(2016) 250 final) 
26 http://www.acp.int/content/declaration-8th-summit-acp-heads-state-and-government-acp-group-states  

24 

 
 
                                                            
4.2 A flexible partnership built on a strong regional approach 

In  view  of  creating  a  relationship  built  on  common  priorities  that  take  into  account  the 
evolved context and lessons learned, various options for the future format have been analysed 
and assessed in an impact assessment27 (see Annex I). 

4.2.1 The options 

The options range from letting the CPA expire without replacing it, to replacing the current 
Agreement with a new one but with limited change. The latter would obviously fail to address 
the serious weaknesses in the existing Agreement. The former option may entail more costs 
than benefits, as it would abandon the positive acquis of a 40 year old partnership and would 
weaken the EU’s role at the global level. A partnership with African, Caribbean and Pacific 
countries  is  in  itself  not  questioned.  However  some  stakeholders  do  criticise  its  current 
approach, content and format. 

Three other options have been assessed more in detail: 

(1)  A  substantially  revised  partnership  with  the  partner  countries.  This  option  would  reflect 
the  developments  since  the  second  revision  of  the  CPA  took  place  in  2010,  but  would  not 
provide the needed policy coherence with the more recent regional strategies and would not 
reflect  adequately  the  growing  importance  of  the  continental  (African  Union),  regional  and 
sub-regional level; 

(2)  A  full  regionalisation  of  the  relations  with  partner  countries,  through  three  separate 
regional  partnerships  (with  Africa,  the  Caribbean,  and  the  Pacific).  This  option  would  fully 
reflect the continental and regional dimension but would fail to respond to the willingness of 
the  partner  countries  to  have  a  renewed  partnership  with  the  EU  and  would  make  it  less 
evident to forge alliances in global fora (such as the UNFCCC or the WTO); 

(3) A third alternative takes the form of one agreement with the partner countries, consisting 
of  three  distinct  regional  partnerships  with  Africa,  the  Caribbean  and  the  Pacific,  with  an 
opening for a closer involvement of other countries, under a common umbrella. The umbrella 
would  define  the  common  values,  principles,  essential  elements,  and  interests  that  underpin 
the cooperation between the parties, building on the significant  acquis of the CPA. It would 
also  include  specific  mechanisms  for  cooperation  on  the  global  agenda.  The  three  regional 
partnerships would build on and integrate existing ones (e.g. Joint Africa EU Strategy) and set 
the  priorities  and  actions  focussed  on  the  specificities  of  the  agenda  of  the  partnership  with 
each of the three regions. This will allow the EU and partner countries to set initiatives at the 
most appropriate level. 

27  Joint  Staff  Working  Document:  Impact  Assessment  on  future  relations  with  ACP  countries  after  2020 
(SWD(2016) xxx).  

25 

 
 
                                                            
4.2.2 The proposed option  

The third option would allow to better tackle issues at the right level and in the right setting, 
on the basis of the principles of subsidiarity and complementarity, while acknowledging that 
many  of  today’s  global  sustainability  challenges  require  action  bridging  individual  regions. 
This is in line with the fact that the bulk of EU engagement is already now at national level, 
followed by regional and only then ACP level. While interests towards Africa, the Caribbean, 
and the Pacific span a number of issues, which would benefit from joint engagement, there are 
also  specific  interests  to  develop  on  a  differentiated  basis.  The  African  Union,  but  also 
regional organisations such as the Economic Community of West African States, the Southern 
Africa Development Community or the East African Community are relevant players, as are 
other regional organisations such as CARICOM/CARIFORUM in the Caribbean. 

At the same time, the umbrella partnership would avoid the cost of refusing any partnership 
with the partner countries as a group and could preserve the Cotonou acquis, notably when it 
comes  to  essential elements and the link with Economic Partnership Agreements. These  are 
identical  for  the  three  regions,  and  thus  provide  significant  economies  of  scale  to  negotiate 
and manage jointly these aspects rather than separately with different groupings or countries. 
It allows developing cooperation at the international level on key common global challenges, 
too.  The  weight  of  the  alliance  can  be  substantial  as  reflected  by  the  role  played  towards 
conclusion of the Paris Agreement. 

Taking into account all these elements, the proposed new format enables the preservation of 
all the valuable elements of the current CPA, but most importantly puts the right conditions in 
place for the EU to meet its new objectives. 

4.2.3 Outreach beyond ACP countries 

The umbrella option also permits best to involve interested countries beyond ACP in order to 
ensure  coherence  in  particular  with  respect  to  the  pan-African  dimension  (e.g.  between  the 
ACP-EU Partnership and the Joint Africa-EU Strategy). This is important, as it would allow 
the  EU  to  align,  where  needed,  the  geographical  scope  for  engagement  with  specific 
objectives  for  a  specific  group  of  countries  and  will  add  diplomatic  capital  to  the  EU  for  a 
more  strategic  pursuit  of  its  interests.  In  this  regard,  the  involvement  of  the  non-ACP 
countries in North Africa, the few non-ACP members of the group of LDCs and of the group 
of  SIDS  is  particularly  important.  Relevant  non-ACP  countries  should  be  more  closely 
involved,  while  at  the  same  time  ensuring  coherence  with  existing  policy  frameworks  (e.g. 
European neighbourhood policy) and already existing association agreements. 

4.3 A multi-level, multi-stakeholders partnership with key principles for 
cooperation 

The  partnership  should  be  based  on  a  series  of  principles.  It  should  be  delivered  through  a 
multi-level system of governance that allows taking actions at the most appropriate level, in 
line  with  the  principles  of  subsidiarity  and  complementarity,  as  well  as  differentiation  and 

26 

 
 
regionalisation.  The  partnership  should  also  build  on  a  multi-stakeholder  approach,  going 
beyond governments which cannot handle the challenges alone. 

4.3.1 Fundamental principles for cooperation 

The new partnership should be underpinned by the following fundamental principles: 

-  dialogue; 

-  mutual accountability; 

-  broad participation of state and non-state actors:  

-  ownership. 

4.3.2 Subsidiarity and complementarity principles 

The  partnership  should  reflect  and  integrate  the  regional  dynamics  across  Africa,  the 
Caribbean,  and  the  Pacific.  It  should  do  so  by  ensuring  that  political  engagement  and 
decision-making  takes  place  at  the  most  relevant  level  of  responsibility,  be  it  national, 
regional, continental or ACP-wide. 

4.3.3 Actors 

As pointed out in the public consultation and the evaluation, the multi-stakeholder dimension 
of the partnership is recognised but deserves to be strengthened. It should reach out to a range 
of actors, both state and non-state actors. A new partnership should reinforce their respective 
roles. These include: 

-  State actors: national governments, parliaments and regional and local authorities; 

-  Regional organisations (including African Union); 

-  Non-ACP countries, and 

-  Non-state  actors,  including  civil  society,  economic  and  social  partners  and  the  private 

sector. 

4.4 A partnership that delivers better 

The  partnership  has  to  define  appropriate  means  and  tools  that  allow  delivering  most 
efficiently  on  the  set  priorities.  This  has  to  be  fully  aligned  with  the  Addis  Ababa  Action 
Agenda, which is part of the 2030 Agenda, the elaboration of a new European Consensus on 
Development, the Paris Climate Change Agreement, and the recommendations emerging from 
the CPA evaluation.  

27 

 
 
4.4.1 Diversified partnership 

The  partnership  should  apply  differentiated  implementation  methods  in  line  with  the  2030 
Agenda,  the  Addis  Ababa  Action  Agenda,  the  EU  Global  Strategy  and  the  European 
Consensus on Development.28 

4.4.2 Means of implementation 

The  Addis  Ababa  Action  Agenda  sets  out  a  new  paradigm  and  provides  a  framework  for 
implementing the 2030 Agenda, through financial and non-financial means. It should be at the 
heart of the partnership. It includes domestic action, enabling policy frameworks and the role 
of a vibrant private sector, all underpinned by a supportive international environment. 

Partner  countries  should  concentrate  efforts  on  addressing  existing  gaps  on  domestic  public 
finances,  including  improved  domestic  resource  mobilisation;  more  effective  and  efficient 
public  expenditure;  and  debt  management.  Fair,  transparent,  efficient,  and  effective  tax 
systems and  public expenditure frameworks  should  be promoted. Particular attention should 
be given to tackling tax avoidance, tax evasion, and illicit financial flows. 

The  EU  should  look  forward  to  combined  modalities  and  tools  that  have  shown  high 
performance,  while  keeping  a  high  level  of  flexibility  to  be  able  to  adapt  to  further 
improvements.  This  should  be  in  line  with  the  development  effectiveness  principles 
(including ownership, transparency, mutual accountability and focus on results) and should be 
further supported by the implementation of policy coherence for development (PCD). 

4.5 A partnership supported by the right institutional set-up  

The institutional set-up should reflect the political nature of the partnership, the priorities set, 
the format chosen, the ways of cooperating and the different actors involved. It should enable 
decisions and actions to be taken quickly and effectively. The present system based on joint 
institutions has proven to be useful to share experiences but it is now outdated since it is too 
heavy and cumbersome. It is too early to define the institutional set-up seen at this stage, but a 
number of principles defining its design can be put forward. 

As a political partnership based on mutual responsibilities and supported by rules, it should be 
implemented through a multi-layered and flexible institutional architecture that promotes and 
facilitates dialogue on issues of common concern. It should use the principles of subsidiarity 
and  complementarity  to  define  engagement  with  relevant  institutional  and  non-institutional 
actors at different levels. 

Dialogue  and  cooperation  at  all  levels  should  focus  on  the  format  that  would  best  serve 
specific  objectives  and  interests,  with  those  countries  and  regional  organisations  or 
cooperative frameworks that perform best in a given area. 

28 Placeholder for Consensus Communication xxxx 

28 

 
 
                                                            
4.6 A partnership supported by a legal framework  

The  legal  status  of  the  future  partnership  plays  an  important  role  for  its  implementation,  as 
confirmed by the analysis made in the Impact Assessment annexed to this Communication. It 
is  therefore  in  the  EU’s  political  interest  to  reaffirm  its  longstanding  commitment  by 
anchoring  the  new  partnership  in  a  legally-binding  agreement.  At  the  same  time,  the  new 
partnership  should  remain  flexible  and  agile  to  adapt  to  its  own  progress  and  the  ever-
changing environment. This is particularly relevant for the regional pillars. These are the basic 
principles  on  which  the  legal  status  of  a  future  partnership  should  be  based  and  fine-tuned 
when the final priorities and main characteristics of the partnership are fully known. 

4.7 Next steps 

The Communication will be the basis for discussions with the Council and the Parliament, as 
well  as  broader  stakeholders  including  ACP  partners,  in  view  of  the  preparation  of  a 
recommendation with negotiating directives.   

29