REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL Third Progress Report on the Partnership Framework with third countries under the European Agenda on Migration
Date: 2017-03-10
Institutions: European Commission, Secretariat-General
Subjects: EU financial instrument, EU migration policy, Mediterranean region (EU), aid to refugees, illegal migration, migrant, migratory movement, refugee, return migration, third country

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   EN 

   EUROPEAN COMMISSION  Brussels, 10.3.2017  COM(2017) 205 final/2   CORRIGENDUM  This document corrects COM(2017) 205 final of 2.3.2017. Concerns the EN language version. Corrections on pages 11 and 16.   The text shall read as follows:  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL  Third Progress Report on the Partnership Framework with third countries under the European Agenda on Migration      
 
 
1. Introduction  
The Partnership Framework1 is now established as the EU approach to address the challenge 
of  irregular  migration  and  its  root  causes  as  part  of  the  broader  cooperation  with  third 
countries. 2  The  European  Council  has  been  tracking  progress  and  at  its  last  meeting  in 
December  2016,  called  upon  Member  States  to  continue  and  step  up  engagement  so  as  to 
progress on "stemming the flows and improving return rates"3.  

This Third Progress Report presents the progress made since December. Engagement with the 
five priority countries identified in the June Communication has continued to develop. In line 
with  the  European  Council  Conclusions  of  December,  this  report  will  also  look  beyond  the 
five priority countries.  
In  particular,  the  report  reflects  the  current  focus  on  the  Central  Mediterranean  route 4 
responding  to  the  continued  high  number  of  crossings  on  this  route,  and  the  unacceptable 
level of deaths in the Mediterranean. A dedicated section of the Report sets out the first steps 
taken to implement the actions agreed in the Malta Declaration adopted by the Heads of State 
or  Government  at  the  informal  Summit  in  Malta  on  3  February,  notably  measures  to  save 
lives,  step  up  the  fight  against  smugglers  and  traffickers,  protect  migrants  and  improve 
migration and border management, in close cooperation with North African countries, and in 
particular with Libya.  

Given  the  close  link  between  the  Partnership  Framework  and  the  work  to  take  forward  the 
Valletta Declaration and Joint Valletta Action Plan5, the Report takes into account the results 
of the senior officials meeting in February6.  

The Partnership Framework is part of the comprehensive response to the migration challenge 
set out in the European Agenda on Migration, where every strand of action is intertwined. In 
this perspective, this Report is linked to the renewed Action Plan on a more effective return 
policy  and  the  Recommendation  on  the  implementation  of  the  Return  Directive  adopted  in 
parallel  by  the  Commission7.  Substantial  progress  on  returns  also  depends  on  making  legal 
and administrative processes inside the EU simpler and more effective, and also on ensuring 
full cooperation with third countries of origin, fully respecting humanitarian imperatives and a 
high protection of human rights. 

With the Partnership Framework approach in place and with concrete objectives and actions 
identified  and  under  way,  the  task  now  is  to  increase  tangible  results  in  all  areas  of 
cooperation. Progress in reducing flows and increasing returns needs to be stepped up in view 
of the upcoming summer season. Work needs to intensify to build a common understanding 
between the EU and partner countries of the issues at stake and how to address them, to carry 
this forward into concrete results, and to strengthen further the good cooperation between the 
EU  and  the  Member  States.  The  Commission,  in  close  cooperation  with  the  European 

1   Communication  on  establishing  a  new  Partnership  Framework  with  third  countries  under  the  European 

Agenda on Migration, COM(2016) 385 final of 7.6.2016.  

2   Unless indicated otherwise, numbers of arrivals of migrants to Europe are based on data from the European 
Border and Coast Guard Agency; data on returns for 2015 are based on Eurostat statistics and for 2016 on 
the results so far from a dedicated data call to Member States which was done in January/February 2017. 

3   http://www.consilium.europa.eu/en/press/press-releases/2016/12/15-euco-conclusions-final/ef.  
4  

JOIN  (2017)  4  final.  Joint  Communication  to  the  European  Parliament,  the  European  Council  and  the 
Council: "Migration on the Central Mediterranean route – Managing flows, saving lives". 

5   The 5 pillars of the Joint Valletta Action Plan are: Development benefits of migration and addressing root 
causes  of  irregular  migration  and  forced  displacement;  Legal  migration  and  mobility;  Protection  and 
asylum;  Prevention  of  and  fight  against  irregular  migration,  migrant  smuggling  and  trafficking  in  human 
beings; and Return, readmission and reintegration. 

6   Follow up of the Valletta Summit on migration of November 2015. 
7   COM(2017) 200 and C(2017) 1600 of 02.03.2017 respectively. 

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External Action Service, will take stock of the approach and its results in reducing irregular 
migration flows, addressing its root causes and improving return rates when it reports in June, 
one year on from the launch of the Partnership Framework.  

2.  

Progress/results with the priority countries 

Niger 

Cooperation  with  Niger  as  a  key  transit  country  continues  to  be  effective.  The  visit  of 
President Issoufou of Niger to Brussels in December 2016 gave an opportunity to underline 
the  importance  of  EU-Niger  relations  and  the  mutual  interest  in  fighting  smuggling  and 
ensuring  better  migration  management  in  the  Sahel  region.  The  Danish  Minister  for 
Development  Cooperation  visited  the  country  in  January,  in  parallel  with  an  EU  technical 
mission.  A  further  technical  mission  in  February  gathered  data  on  alternative  routes  and 
identified options for possible new projects. An EU and Member State senior official mission 
to Niger is planned for the end of March. 

There has been a clear decline in departures of migrants from Agadez towards Europe (from 
the  peak  of  70 000  departures  in  May  to  6 524  in  January  2017)8.  The  number  of  migrants 
being  directed  towards  the  International  Organisation  for  Migration  for  repatriation  has 
increased,  together  with  voluntary  returns.  In  2016,  the  number  of  migrants  supported  in 
centres  operated  by  the  International  Organisation  for  Migration  doubled  over  the  previous 
year,  with  over  15 000  assisted9.  Out  of  these,  4 788  migrants  from  third  countries  and  301 
Nigeriens were assisted with voluntary return to their communities of origin during the first 
eleven months of 2016 (more than three times the figure for 2015). The transit centres have 
also offered training to both migrants and the local population to develop sources of income in 
areas like brick-making and the production of jewellery. By the end of 2016, over 600 people 
had benefitted from this training.  

The  Nigerien  law  enforcement  authorities  have  continued  their  efforts  to  address  irregular 
transit and smuggling of migrants, with more vehicles seized and drivers arrested. EU funds 
are  supporting  enforcement  of  the  anti-migrant  smuggling  legislation.  More  efforts  are 
certainly  needed  to  effectively  dismantle  smuggling  networks,  which  often  work  across 
borders.  

Work  will  focus  on  strengthening  the  EU  support  for  the  implementation  of  the  Nigerien 
emergency  Action  Plan  against  smuggling  of  migrants  in  the  Agadez  region,  adopted  in 
November.  Key  to  this  is  the  reinforcement  of  EU  and  Member  State  presence  in  the  field. 
Action against smuggling networks will also be reinforced by support to a joint investigation 
team.  

An  EU  Migration  Liaison  Officer  was  deployed  to  the  EU  Delegation  in  Niamey  on  1 
February.  Further  EU  staff,  including  a  European  Border  and  Coast  Guard  Agency  liaison 
Officer,  will  also  be  deployed  to  the  Delegation.  Through  the  Africa-Frontex  Intelligence 
Community,  national  authorities  of  the  partner  countries  along  the  migratory  route  are 
supported to develop risk analysis and assessment of flows. A meeting of the Africa-Frontex 
Intelligence  Community  is  taking  place  in  Niger  at  the  start  of  March,  and  a  Risk  Analysis 
Cell will be launched later in 2017. 

8   Source:  International  Organisation  for  Migration,  http://www.globaldtm.info/dtm-niger-flow-monitoring-

9  

report-january-2017/. 
International Organisation for Migration Niger overview, January 2017. Those helped were 70% male and 
30% female. 

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In addition to the emergency Action Plan, a medium term Action Plan, under preparation by 
the Nigerien authorities, will aim to address gaps in the current approach. Both will be taken 
forward under a new national strategy on migration which is currently being finalised by the 
Nigerien authorities.  

EU action also supports Niger's overall development efforts and the root causes of migration 
and forced displacement. In addition to a budget support programme, Niger is now benefitting 
from  nine  projects  supported  under  the  EU  Trust  Fund  for  Africa10.  At  the  end  of  January 
2017, three new projects were launched on the ground in Agadez. In addition, further projects 
were  approved  in  December,  which  are  expected  to  include  assistance  to  30 000  migrants, 
return  of  12 000  persons  and  the  sensitisation11 of  40 000  migrants.  The  projects  also  target 
providing  a  plot  of  land,  accommodation  and  access  to  drinkable  water  to  28 000  people, 
while  42 000  people  will  have  access  to  accommodation  and  drinkable  water,  and  2 000 
construction jobs will be created. The Commission has also signed a contract with the High 
Authority for Consolidation for Peace that will provide short term employment opportunities 
for youth, thus contributing to provide alternative sources of income for 65 000 people. Other 
projects being developed include assessing the feasibility of a project of a hybrid power plant 
in  Agadez,  which  would  be  an  important  factor  for  boosting  both  employment  and  energy 
security.  

A project under the EU Trust Fund for Africa has already been approved in the Diffa region, 
which  faces  particular  pressures  following  the  Boko  Haram  insurgency.  Security  issues  are 
however hampering the efficiency of aid delivery. 

While a decrease of flows through Agadez has been observed over the recent months and the 
Nigerien  authorities  have  stepped  up  control  of  the  known  main  transit  routes,  potential 
alternative  routes  will  need  to  be  monitored,  both  within  Niger  and  through  neighbouring 
countries  (such  as  Mali,  Chad  or  Algeria).  These  alternative  routes  are  likely  to  be  more 
dangerous  for  migrants,  given  the  geography,  the  poor  infrastructure,  and  the  presence  of 
armed groups. In  January 2017, the EU conducted two field  missions  to  assess these routes 
and to help identify rapid impact projects to create economic alternatives in local communities 
reliant on the income from smuggling. Effective monitoring and analysis of alternative routes 
requires working jointly with the International Organisation for Migration and European and 
Member State liaison officers. In addition, synergies need to be developed with the projects in 
areas  like  police  cooperation  and  existing  regional  cooperation,  as  well  as  strengthening 
cooperation in other other policy areas such as climate change (soil rehabilitation, irrigation, 
reforestation) and education mobility.  

Addressing  developments  on  the  route  requires  stronger  regional  engagement,  in  particular 
with the G5 Sahel12. The EU already provides support, mainly through its Common Security 
and  Defence  Policy  missions  and  the  EU  Trust  Fund  for  Africa.  The  EU  will  continue 
increasing  its  support  to  the  G5  Sahel.  Furthermore,  new  activities  could  be  considered,  to 
enhance  the  capacity  of  Libya's  southern  neighbours  in  areas  such  as  border  control  and 
intelligence.  

Next steps: 

  Swift signing of contracts on all actions now agreed under the EU Trust Fund to ensure 
concrete  implementation  and  provide  alternative  income  opportunities  to  substitute  the 
smuggling economy. 

10   Commission Decision C(2015) 7293 final; The EU emergency Trust Fund for stability and addressing root 

causes of irregular migration and displaced persons in Africa (the EU Trust Fund for Africa). 

11   Sensitisation means awareness-raising activities. 
12   The G5 Sahel countries are Burkina Faso, Chad, Mali, Mauritania, Niger. 

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 

 

Intensified  action  to  fight  smuggling  and  trafficking,  including  support  to  a  joint 
investigation team. 
Intensified  monitoring  of  possible  alternative  routes  and  preparation  of  support  to 
appropriate action in response, modelled on the approach taken in the Agadez region.  
  Provide  feedback  to  a  medium  term  Action  Plan  developed  by  Niger,  expected  by  the 

end of March, focusing on gaps to be addressed.  

  Establishment of a working arrangement between the European Border and Coast Guard 
Agency  and  Nigerien  authorities  and  deployment  of  a  liaison  officer  to  the  EU 
Delegation. 

  Full operationalisation of the EU antenna in Agadez, including for training. 
  Follow-up on the meeting of the Africa-Frontex Intelligence Community and prepare to 

launch the Risk Analysis Cell. 

Nigeria 

Nigeria is Africa’s most populated country and Nigerians constitute the largest single group of 
irregular  migrants  to  the  EU,  with  37 811  detected  crossings  in  201613.  The  economic  and 
security situation is a major push factor for migration movements, both within the region and 
towards the EU. 

In  line  with  the  objective  of  broadening  the  policy  areas  of  cooperation  with  Nigeria, 
Commission  Vice-President  Ansip  visited  the  country  on  2-3  February,  where  he  met  with 
Vice-President (and then acting President) Osinbajo  to discuss areas of cooperation relevant 
also  for  migration  management.  The  visit  explored  possibilities  to  launch  pilot  projects  and 
cooperation in areas including e-Government, cyber security, fighting corruption, promotion 
of investment and trade, as well as migration management. Furthermore, high-level contacts 
have  recently  taken  place  with  the  Netherlands  and  Spain,  whilst  Nigeria  and  Italy  are 
discussing technical assistance, to possibly include developments on biometric databases.  

Nigeria remains the most significant country of origin for non-EU victims of trafficking in the 
EU. Nigerian traffickers are the most reported traffickers in the EU from non-EU countries14. 
To  help  tackle  this,  Nigeria  actively  participates  also  in  the  Africa-Frontex  Intelligence 
Community,  and  the  recently  launched  Cooperation  Platform  on  Migrant  Smuggling, 
involving  EU  Agencies  and  Member  States,  will  help  to  improve  cooperation  and 
coordination on the fight against smuggling and trafficking.  

The framework of the EU-Nigeria cooperation on migration is structured under the Common 
Agenda  on  Migration  and  Mobility,  signed  in  2015.  In  terms  of  return  and  readmission, 
Nigeria cooperates with a number of Member States but cooperation is uneven. In 2015 28% 
of return decisions resulted in effective return. Based on data available so far, the return rate 
seems to have improved in 2016. The level of cooperation on readmission varies across the 
EU.  

In 2016, Nigeria was the main destination of European Border and Coast Guard Agency joint 
return operations and the cooperation is relatively positive – Nigeria responded positively to 
around 60% of the requests for travel documents. However, Nigerian identification missions 
to three European countries in November 2016 have not yet yielded the expected results: three 

13   Disclaimer: the European Border and Coast Guard Agency provides monthly data on the number of people 
detected at the external borders of the European Union. Irregular border crossings may be attempted by the 
same person several times in different locations at the external border. This means that the same person may 
therefore be represented more than once in statistics on crossings.€  

14   Europol, Situation report (February 2016): Trafficking in Human Beings in the European Union.  

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months later, emergency travel documents for the identified migrants are still to be issued by 
the Ministry of Foreign Affairs.  

Progress  in  the  negotiations  of  the  EU-Nigeria  readmission  agreement  is  of  the  utmost 
importance: the first round took place in October 2016, but a second round of talks has been 
postponed several times by Nigeria. The EU's aim is to conclude the readmission agreement 
in  time  for  the  planned  EU-Nigeria  ministerial  meeting.  A  European  Migration  Liaison 
Officer has been deployed since 1 February. 

The EU Trust Fund for Africa is an important instrument for projects in Nigeria with a strong 
migration focus, particularly on the South of the country. It complements the sizable national 
contribution  towards  addressing  root  causes  of  irregular  migration  and  forced  displacement 
under  the  national  envelope  funded  by  the  European  Development  Fund.  Projects  adopted 
under the EU Trust Fund for Africa in December 2016 with the International Organisation for 
Migration will lead to the reintegration of more than 3 800 returning migrants from EU and 
transit countries. In addition, more than 5 million pupils will benefit from books and literacy 
lessons, and more than 75 000 children will gain access to mental health services. Other areas 
to  explore  include  Foreign  Direct  Investment  (including  through  the  proposed  External 
Investment  Plan  –  see  section  4)  and  the  digital  economy,  areas  of  interest  to  Nigeria  that 
would have a direct impact on the root causes of migration. 

The Commission also continues to cover basic humanitarian needs of the victims of the crisis 
in Nigeria. In seven years of conflict in North-eastern Nigeria, over 20 000 people have been 
killed and 1.77 million internally displaced. This includes mainly assistance in terms of food 
and nutrition, protection, water, sanitation and hygiene, shelter, non-food items, and health. 

Next steps: 

  Conclude the negotiations on the Readmission Agreement by June 2017. 
  Continue  active  cooperation  on  anti-smuggling  and  trafficking  through  the  Africa-
Frontex  Intelligence  Community  and  the  recently  launched  Cooperation  Platform  on 
Migrant Smuggling. 
Identify EU Trust Fund for Africa projects with a strong migration focus.  

 

Senegal 

Senegal is a key political partner for the EU in the region and beyond. As well as being one of 
the central actors in the Rabat Process and the follow-up of the Valletta summit, cooperation 
also extends to areas like the International Criminal Court and the fight against radicalisation 
and terrorism. Senegal's priorities are legal migration, the fight against migrant smuggling and 
addressing the root causes of irregular migration. 

Engagement  with  Senegal  on  migration  management  has  to  take  into  account  the  political 
context:  Senegalese  diaspora  will  for  the  first  time  be  able  to  directly  elect  members  of  the 
National  Assembly  in  the  legislative  elections  scheduled  for  July  2017.  This  will  give  a 
particular political importance to the interests of long-term Senegalese residents abroad. More 
broadly, it also reflects the economic, cultural and social significance of migration in Senegal: 
a  support  fund  for  investments  financed  by  the  Senegalese  diaspora 15  is  a  tangible 
demonstration  of  how  the  diaspora  can  help  to  create  employment  opportunities  in  Senegal 
and thus contribute to provide domestic perspectives for young people. 

15  The Fonds d'Appui à l'Investissement des Sénégalais de l'Extérieur financed 170 projects in 2016, for a total 

of EUR 1.3 million.  

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Taking into account these sensitivities, dialogue with Senegal at political level has continued, 
including  a  meeting  between  High  Representative/Vice-President  Mogherini  and  President 
Sall in Dakar in December 2016, and a visit of President Sall to France.  

Nevertheless,  most  Member  States  concerned  by  returns  to  Senegal  continue  to  face 
difficulties  when  seeking  cooperation  on  the  identification  and  documentation  of  irregular 
migrants  presumed  to  be  Senegalese  nationals,  and  a  number  of  planned  identification 
missions  did  not  materialise.  Even  where  migrants  have  been  identified  for  return,  it  has 
proven challenging to obtain the travel documents required from the Senegalese authorities. In 
2016,  only  563  Senegalese  irregularly  staying  in  Europe  returned  to  Senegal.  This  figure 
contrasts with the more than 10 000 Senegalese nationals that arrived irregularly through the 
Central Mediterranean route in 2016.  

Some progress has been made in bilateral work, focused on returning irregular migrants who 
recently  arrived  via  the  Central  Mediterranean  route.  If  these  initial  steps  of  cooperation 
deliver  tangible  results  in  the  coming  weeks,  they  will  be  further  consolidated  by  way  of 
exchanges  of  officials  and  trainings  to  be  organised  on  a  bilateral  basis  within  the  EU 
framework, including by supporting reintegration projects. Missions to other Member States 
are  still  expected  to  take  place  in  2017.  On  this  basis,  strands  of  cooperation,  including  on 
legal migration and mobility, will be further explored, starting with Erasmus+ opportunities. 

A  European  Migration  Liaison  Officer  was  deployed  to  the  EU  Delegation  in  Dakar  on  1 
February  2017.  Senegal  has  also  identified  Focal  Points  for  Identification  in  relevant 
ministries.  Negotiations  between  the  European  Border  and  Coast  Guard  Agency  and  the 
Senegal authorities on improved working arrangements for closer cooperation have also been 
launched.  

In  support  of  efforts  to  address  the  root  causes  of  irregular  migration,  Senegal  can  benefit 
from nine projects supported under the EU Trust Fund for Africa, four of which were adopted 
in  December  2016 16 .  These  new  projects  will  support  reintegration,  job  creation,  and  a 
biometric  national  registry  system.  The  results  from  these  new  projects  would  include 
reintegration of 3 000 persons, and sensitisation of 200 communities and 30 000 migrants. It 
is  expected  that  more  than  6 500  new  jobs  will  be  created.  Senegal  also  benefits  from  the 
regional project supporting the internal security services of six Sahel countries. This could be 
stepped  up  on  the  basis  of  the  ongoing  cooperation  through  dedicated  engagement  for 
example  in  the  fields  of  fisheries,  climate  change,  renewable  energy,  agriculture  and 
education mobility.  

Next steps: 

  Follow  up  missions  undertaken,  ensuring  the  effective  return  of  identified  irregular 

migrants. 
 
Improve day to day cooperation for both identification and issuance of travel documents;  
  Finalise and sign by mid-2017 working arrangements between Senegal and the European 

Border and Coast Guard Agency. 

  On  the  basis  of  results  achieved  step  up  cooperation  in  other  areas  including  border 

management. 

16  The four projects approved in December amount to EUR 89 million, the total amount for the nine projects 

from which Senegal can benefit is EUR 161.8 million. 

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Mali 

Mali  remains  a  significant  country  of  both  origin  and  transit  for  migrants.  10 268  Malian 
nationals  arrived  irregulary  to  Italy  through  the  Central  Mediteranean  route  in  2016 17 . 
Dialogue and cooperation with Mali on return suffered a setback following inaccurate media 
reports in December 2016 about the signature of a formal agreement on return with the EU 
which never took place, and Mali did not sign Operating Procedures on readmission.  

The  number  of  return  decisions  issued  to  Malian  nationals  in  2016  (3 302)  remained  at 
approximately the same level as in 2015 (3 505)18. But only a small proportion of these have 
been  effectively  returned  (6.5 %  in  2016).  Difficulties  persist  as  to  the  confirmation  of 
nationality  and  the  issuance  of  consular  travel  documents  by  Malian  consulates  to  persons 
identified  as  Malian  nationals.  This  dimension  will  need  to  be  further  addressed  in  the 
contacts with Malian authorities to find common ground and workable solutions. The role of 
the  diaspora  in  Europe  could  be  reinforced  to  assist  areas  like  voluntary  returns  and 
reintegration of Malian irregular migrants in their local communities. 

On  the  positive  side,  engagement  on  the  fight  against  smuggling  of  migrants  continues,  as 
does high level dialogue. Mali also continues to play a constructive role in the follow-up to 
the 2015 Valletta Summit, as chair of the Rabat Process and a recent meeting between High 
Representative/Vice-President  Mogherini  and  Minister  for  Malians  Abroad  Sylla  identified 
common priorities for further cooperation on migration management.  

The fight against migrant smuggling and human trafficking, and the reinforcement of Mali's 
border  management,  are  priority  areas  for  action  in  the  short  term.  On  border  management, 
cooperation  with  the  Malian  authorities  is  already  ongoing.  In  the  past  months,  work  has 
focused  on  cooperation  with  Malian  actors  and  international  partners  to  support  a  National 
Border Strategy and a related Action Plan. This should soon be adopted. In addition, capacity 
building  of  the  police  forces  in  charge  of  border  management  in  Mali  will  continue  in  the 
months  to  come,  in  coordination  with  other  regional  initiatives  on  border  management  and 
organised  crime.  A  Common  Security  and  Defence  Policy  (CSDP)  mission  is  already 
operating in Mali and its migration dimension will be stepped up in the coming months.  

Mali is one of the main recipients of funds through the EU Trust Fund for Africa, with nine 
projects approved so far19. The projects adopted in December 2016 are now in the contracting 
phase.  They  include  projects  to  improve  the  biometric  population  registry,  for  the 
reintegration  for  returnees  and  for  youth  employment.  Expected  results  would  include  the 
direct  creation  of  10 000  jobs  and  indirect  creation  of  35 000  jobs.  16 000  migrants  will  be 
assisted,  4 000  returned,  and  1 900  reintegrated.  In  addition,  17 000  migrants  will  be 
sensitised.  The  other  six  projects  approved  earlier  in  2016  are  in  the  process  of  being 
implemented,  including  a  support  program  for  border  management  and  for  reinstallation  of 
Malian security forces in sensitive regions. This comes on top of support under the European 
Development Fund and potential for further cooperation in areas such as agriculture, climate 
adaptation and education mobility.  

The situation in terms of protection  is also a concern, with over 35 000 internally  displaced 
persons  inside  Mali  and  almost  136 000  Malian  refugees  in  its  neighbouring  countries 20. 
Despite  the  worsening  security  environment  in  central  and  northern  Mali,  the  Commission 

17   In 2017, almost 500 Malians already arrived irregularly to Italy by 20 February. (source: European Border 

and Coast Guard) 

18   This is based on partial data, notably excluding Germany which could alter the trend. 
19   The  three  projects  adopted  in  December  amount  to  EUR  61  million,  out  of  a  total  of  nine  projects  worth 

EUR 151.6 million. 

20   More than 42 000 in Mauritania, 60 000 in Niger, and 32 000 in Burkina Faso. Source: United Nations High 

Commission for Refugees. 

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continues to work with humanitarian actors to deliver support to Malian communities in these 
areas, as well as in neighbouring countries hosting refugees.  

Next steps 

  Deployment  of  a  mission  at  technical  level  to  explore  options  for  cooperation  and 

strenghtening of capacities for border management and the fight against smuggling. 

  Step  up  work  with  Mali  on  the  transit  dimension,  focusing  on  voluntary  return  of 

transiting migrants. 

  Strengthen  cooperation  on  effective  return  of  irregular  migrants  including  of  Malians 

attempting to cross the southern Libyan border irregularly. 

  Maintain close dialogue with Mali as Chair of the Rabat Process. 

Ethiopia 

Arrivals  of  Ethiopian  nationals  on  the  Central  Mediterranean  route  reached  3 657  in  2016, 
while  some  30  000 21  Ethiopians  are  regularly  residing  in  Europe  and  up  to  5 000  new 
residence permits delivered every year. Ethiopia is also a key country of transit for migrants 
and refugees from the Horn of Africa, including for  Eritrean refugees and asylum seekers  – 
though  numbers  here  are  declining,  with  over  21  000  Eritreans  reaching  European  shores 
through the Central Mediterranean route in 2016.  

While  the  importance  of  Ethiopia  for  regional  stability  is  widely  recognised,  the  internal 
political situation in Ethiopia remains difficult. The ongoing State of Emergency has led to a 
decrease  in  violence,  and  the  Government  has  started  engaging  with  opposition  parties. 
However, it remains to be seen whether this will be sufficient to address the pressures which 
led to the outburst of violence last October. The EU will continue to engage with all relevant 
stakeholders  to  prevent  renewed  violence,  support  the  necessary  political  reforms  and  to 
facilitate an inclusive dialogue.  

Since June 2016 EU relations with Ethiopia have been framed by the EU-Ethiopia Strategic 
Engagement,  which  includes  a  sectoral  dialogue  on  migration.  Ethiopia  has  taken  an  active 
and constructive role in regional migration management in the follow-up to the 2015 Valletta 
Summit, notably as Chair of the Khartoum process since December 2016. 

High  level  engagement  has  continued,  through  a  meeting  between  Commissioner  for 
International  Cooperation  and  Development  Mimica  with  Prime  Minister  Desalegn  in 
January, a meeting between High Representative/Vice-President Mogherini and the Ethiopian 
Minister for Foreign Affairs Gabeyehu in the margins of the February 2017 Munich Security 
Conference,  and  a  visit  of  Minister  Gabeyehu  to  Brussels,  also  in  February.  High 
Representative/Vice-President Mogherini is scheduled to travel to Ethiopia in March.  

Ethiopia already benefits from a  regional programme to better manage migration, adopted in 
December  2015  supported  under  the  EU  Trust  Fund  for  Africa.  It  will  also  benefit  from 
further regional programmes under the Trust Fund adopted in December 2016. These include 
a Regional Operational Centre for the Khartoum Process, and a Facility to support returns and 
to  help  stranded  migrants  and  their  sustainable  reintegration  into  communities.  Ethiopia 
remains  one  of  the  largest  refugee-hosting  countries  in  Africa,  with  over  790 000  refugees 
from the region22, and has continued to benefit from EU support to these refugees and their 
host  communities  through  humanitarian  funding  and  the  Regional  Development  and 
Protection Programme. Further programmes in the pipeline will contribute to tackling the root 
causes of irregular and forced migration, with a focus on job creation. Notably, support will 

21   Source: Eurostat, Figures for 2015. 
22   Source: United Nations High Commission for Refugees, December 2016. 

9 

 
 
 
 
                                                            
be provided to Ethiopia's commitment to improve livelihood opportunities for refugees in the 
country,  including  by  reserving  30 %  of  100 000  jobs  in  two  planned  industrial  parks  to 
refugees.  The  European  Development  Fund  has  also  contributed  to  Ethiopia's  efforts  to 
improve  migration  management,  notably  through  supporting  a  new  decentralised  migration 
management system.  

While  in  2016  the  contacts  at  technical  and  political  level  have  intensified  and  a  promising 
dialogue on return and readmission has started under the 2015 Common Agenda on Migration 
and Mobility, concrete progress remains very slow. In 2016, only 122 Ethiopians irregularly 
staying in EU countries were returned to Ethiopia. In February 2016, a small number of well-
documented  return  cases  were  submitted  to  the  Ethiopian  authorities  as  a  pilot  to  test 
cooperation  on  migration.  Yet  to  date  travel  documents  have  not  yet  been  delivered  and 
returns are stalled. Dealing with these cases has brought to light the negative consequences of 
having  different  reintegration  packages  among  EU  Member  States  for  returns  to  the  same 
country.  Dates  for  a  proposed  workshop  on  readmission  have  yet  to  be  confirmed.  A 
European Migration Liaison Officer will be deployed in Ethiopia in March 2017. 

 Next steps 

  Finalise  actions  on  the  pilot  return  cases  and  use  them  as  the  blueprint  for  faster 

returns to be performed in the future. 

  Continue to support Ethiopia as a country of transit and of destination of migrants and 
refugees, including through the actions financed under the EU Trust Fund for Africa. 
  Launch the Strategic Engagement sectoral dialogue on migration (target date of April 

2017).  

  Maintain close dialogue with Ethiopia as Chair of the Khartoum Process. 

10 

 
 
 
 
3. Deliverables and next steps with other countries  

Central Mediterranean route 

Figure:  Main  countries  of  origin  for  irregular  migration  from  Africa  and  Asia  in  2016  (Source:  European 
Border and Coast Guard Agency)23 

The Central Mediterranean route has become the dominant route for migrants and refugees to 
reach Europe. Almost 90 % of the 180 000 detected on the route in 2016 departed from Libya, 
with smugglers able to exploit the unstable political and economic situation. Finding a lasting 
solution to Libya's governance and security challenges continues to be a key priority for the 
European Union, its Member States and international partners. The Joint Communication on 
"Migration on the Central Mediterranean Route – Managing Flows, Saving Lives"24 adopted 
in  January  proposes  a  set  of  concrete  operational  actions  to  help  address  the  situation.  The 
success of these actions requires close cooperation with the relevant partners in North Africa 
and  concerted  efforts  by  EU  institutions,  Member  States,  as  well  as  cooperation  with  key 
partners  like  the  United  Nations  High  Commission  for  Refugees  and  the  International 
Organisation for Migration. The proposed actions include: reducing the number of crossings 
and  saving  lives  at  sea,  stepping  up  the  fight  against  smugglers  and  traffickers,  protecting 
migrants, increasing resettlement and promoting assisted voluntary returns, managing migrant 
flows through the southern Libyan border and increased cooperation with Egypt, Tunisia and 

23   The designations employed and the presentation of material on this map do not imply the expression of any 
opinion whatsoever concerning the legal status of any country, territory, city or area or of its authorities, or 
concerning the delimitation of its frontiers or boundaries. 

24   JOIN (2017) 4 final of 25.1.2017. 

11 

 
 
 
 
 
                                                            
Algeria,  including  through  regional  initiatives  like  the  Seahorse  Mediterranean  network25. 
Some  of  the  proposed  actions  can  only  be  successfully  implemented  once  the  security 
situation improves. 
At the Malta Summit, Heads of State or Government adopted the Malta Declaration26, which 
sets out a number of concrete actions to be taken along the route, along the proposals made by 
the Communication. This is being actively taken forward through an Implementation Plan by 
the Maltese presidency, in close coordination with the Commission, the High Representative, 
and the Member States.  

Libya 

Support to the management of migration flows in the North African countries located on the 
Central Mediterranean route is a clear priority. EUR 200 million will be mobilised for projects 
in  2017,  with  a  priority  focus  on  migration-related  projects  concerning  Libya.  Already  in 
2016,  projects  have  focused  on  Libya,  with  the  objective  of  providing  protection  to  most 
vulnerable migrants and creating socio-economic opportunities at local level. A mission at the 
start of March will follow up on the Joint Communication and the Implementation Plan of the 
Malta Declaration. This follows the visit of Prime Minister Serraj to the EU in February. 

Discussions are under way to focus support on protection at disembarkation points, as well as 
on  humanitarian  support  to  those  migrants  who  are  in  reception/detention  centres,  while 
increasing  support  for  alternatives  to  detention.  The  contribution  to  socio-economic 
stabilisation  in  Libya  will  continue  to  be  addressed,  in  particular  through  work  at  the 
municipality level. This will add to work to  enhance rescue at sea, including training of the 
Libyan  Coast  Guard.  Operation  Sophia  and  the  Seahorse  Mediterranean  network  have  both 
already trained members of the Libyan Coast Guard. Operation Sophia has completed a first 
package of activities resulting in the training of 93 personnel and has started a second package 
of specialist training in Malta. Efforts are now being stepped up. A mapping exercise of all 
ongoing  training  activities  has  been  undertaken  to  agree  on  the  establishment  of  a 
comprehensive training plan for the Libyan Coast Guard. Specific coordination mechanisms 
are  in  place.  Immediate  action  by  the  Commission  includes  the  expansion  of  the  Seahorse 
training of the Libyan Coast Guard, with 15 new training courses being planned for the period 
February-July  2017.  This  is  also  complemented  by  support  to  migration  management  under 
the Regional Development and Protection Programme. 

Coordination  has  also  been  stepped  up  with  several  UN  organisations, including  the  United 
Nations  High  Commissioner  for  Refugees,  the  International  Organisation  for  Migration,  the 
World  Health  Organisation,  the  World  Food  Programme,  the  United  Nations  Development 
Programme,  and  the  United  Nations  International  Children's  Fund,  to  discuss  ideas  on 
possible cooperation.  

As  part  of  the  project  supported  under  the  EU  Trust  Fund  for  Africa,  the  International 
Organisation  for  Migration  has  been  assigned  to  implement  the  voluntary  return  and 
reintegration  of  an  initial  target  of  5 000  migrants  in  Libya.  It  remains  important  to  swiftly 
implement  this  and  seek  to  further  expand  it,  including  through  providing  sustainable 
reintegration support to an increased number of migrants, in complementarity with actions by 
Member  States.  Reintegration  support  will  be  provided  to returnees  across  the  whole  of  the 
area  covered  by  the  Trust  Fund.  A  joint  initiative  has  already  been  signed  between  the 
Commission  and  International  Organisation  for  Migration  in  December  2016  for  migrant 

25   A regional network for the exchange of information and cooperation on irregular migration and cross-border 
crime between points of contact in North African countries and Member States in the Mediterranean region. 

26   http://www.consilium.europa.eu/en/press/press-releases/2017/01/03-malta-declaration/ 

12 

 
 
 
                                                            
protection and reintegration in Africa along the Central Mediterranean migration routes (EUR 
100 million). The EU will continue facilitating the work of the International Organisation for 
Migration, including by fostering cooperation with African partners to accelerate the assisted 
voluntary returns of migrants stranded in Libya. An increasing number of migrants in Libya 
are  being  assisted  in  this  way.  1 113  migrants,  mostly  from  sub-Saharan  countries, 
volunteered to return home in 2015, 2 777 in 2016 and in 2017 so far, return assistance was 
offered to  744  stranded migrants,  with Nigeria and  Senegal the most  important  countries of 
origin27. The most vulnerable returnees were given additional reintegration assistance, which 
helps  in  cases  like  establishing  small  businesses,  pursuing  educational  opportunities,  or 
seeking treatment for health issues. 

Strong coordination on the ground will be sought with Member States, in particular with Italy, 
which has announced its intention to set up an Africa fund of EUR 200 million, part of which 
will help implement the Italy-Libya Memorandum of Understanding28.  

Egypt 

In the past months there has been a significant decline in the number of migrants headed for 
Europe embark in Egypt to cross the Mediterranean29, Egypt remains a key strategic partner 
on  migration.  It  is  a  key  geographical  crossroads  and  the  Egyptian  authorities  have  been 
working to prevent irregular access to Libya and to ensure the swift return of its own nationals 
arriving  to  the  EU  through  the  Central  Mediterranean  route.  Continued  and  increased 
engagement with Egypt is key. On the basis of the future Partnership Priorities, concrete and 
intensified cooperation on migration management will be sought, in particular to support the 
implementation  of  national  strategies  to  address  the  root  causes  of  irregular  migration.  The 
engagement  will  be  followed  up  when  the  Egyptian  Foreign  Minister  addresses  the Foreign 
Affairs Council in March. Concrete follow-up of a visit at Senior Officials level in January is 
also under way.  

The  Terms  of  Reference  for  a  formal  EU-Egypt  migration  dialogue  are  currently  being 
defined and a first meeting should take place in March/April 2017. Discussions are also under 
way  on  projects  under  the  EU  Trust  Fund  for  Africa.  Intensified  cooperation  could  include 
supporting  cooperation  with  the  authorities  to  implement  national  strategies,  addressing  the 
root  causes  of  irregular  migration  through  supporting  local  economic  development  and 
through providing access to jobs for migrants and host communities, and increasing protection 
for the most vulnerable.  

Other  workstrands  include  an  inter-agency  visit  to  the  European  Border  and  Coast  Guard 
Agency  in  Warsaw  in  March,  the  nomination  of  an  Egyptian  contact  point  for  Operation 
the  Seahorse 
Sophia,  and  examining  possibilities  for 
Mediterranean  project.  Increasing  the  capacity  of  the  authorities  of  the  North  African 
countries  to  tackle  irregular  migration  and  trafficking  by  strengthening  their  border 
surveillance systems is key. In this light, Egypt's involvement in the Seahorse Mediterranean 
project will be of paramount importance. 

information  exchange  under 

Finally,  Egypt  has  expressed  general  interest  in  migration  management  capacity  building, 
notably to help implement a new anti-smuggling law adopted in October 2016. 

27   Source: International Organisation for Migration. 
28   Signed on 2 February 2017 between Prime Minister Gentiloni and the Chairman on the Libyan Presidential 

Council al-Serraj. 

29   From mid-2016, there has been a dramatic decline in the number of irregular migrants registered as arriving 

in the EU from Egypt. Only three persons have been recorded since the start of 2017. 

13 

 
 
 
 
                                                            
West Africa 

In February 2017, the Commission extended the geographical scope of the EU Trust Fund for 
Africa to cover Côte d'Ivoire, Ghana and Guinea30. Technical missions to these countries are 
now being planned to identify their needs in light of possible support. 

Commissioner  Mimica  has  visited  the  Gambia  in  February  to  meet  newly  elected  President 
Barrow as a sign of support for the peaceful and democratic change. Discussions in the field 
of migration will be followed up soon. 

Asia  

Asia is one of the major areas of origin of migration to the EU. Security challenges, political 
instability and poverty all make this likely to continue. Within the framework of the Budapest 
Process, the Silk Routes Partnership for Migration offers a structured dialogue with the EU, 
and an action adopted in December 201631 aimed at maximising the development potential of 
migration and mobility within the region and provides a regional response. 

Afghanistan is a very important country of origin. In 2016, 50 000 Afghans arrived irregularly 
in Europe, and whilst this represented a major fall from 2015, the share of Afghans remains 
high.  Afghans  are now the second-largest group of applicants  for international protection in 
the  EU  (over  175 000  in  2016),  though  the  proportion  of  Afghans  recognised  as  needing 
international  protection  has  fallen 32.  Assisted  voluntary  returns  increased  significantly,  to 
almost  6 000  in  2016.  Returns  from  Member  States  and  third  countries  need  to  increase  to 
reduce the high number of Afghans still stranded in countries on the Western Balkan route. 
The Commission is working with the countries concerned, and with the Afghan authorities, to 
make progress in this area.  

Cooperation with Afghanistan on return has continued under the Joint Way Forward signed in 
October  2016,  as  well  as  bilateral  agreements  with  Member  States.  Since  December  2016, 
four  return  flights  have  been  organised  with  a  total  of  75  returnees.  The  Commission  is 
closely monitoring the implementation of the Joint Way Forward and a second meeting of the 
Working Group for its implementation will take place at the end of March.  

The cooperation in the area of irregular migration has been accompanied by help to the long-
term reintegration of returning migrants. Afghanistan will be the largest single beneficiary of 
a regional programme to help reintegration. The EU will support the sustainable reintegration 
of  those  Afghan  nationals  who  have  returned  from  Pakistan  and  Iran  to  Afghanistan, 
facilitating  access  to  livelihood  support  services  and  social  cohesion  in  host  communities, 
reflecting  a  regional  approach  to  support  the  protection  and  sustainable  reintegration  of 
Afghan nationals displaced in their region.  

Migration is in the forefront of the EU's overall relationship with  Pakistan and the effective 
implementation of the EU-Pakistan Readmission agreement is addressed at the regular Joint 

30   Commission  Decision  C(2017)772  of  08.02.2017  modifying  Commission  Decision  C(2015)7293  of 
20.10.2015 on the establishment of a European Union Emergency Trust Fund for Stability and addressing 
root causes of irregular migration and displaced persons in Africa. 

31   Funded under the Development Cooperation Instrument. 
32   The recognition rate of Afghan applicants has decreased continually between September 2015 (68 %) and 

December 2016 (33%). 

14 

 
 
 
 
 
                                                            
Readmission  Committees.  The  latest  meeting  on  28  February  took  stock  of  the  difficulties 
experienced  by  Member  States  in  readmission  and  agreed  to  set  up  an  electronic  platform 
aimed at reducing problems in processing readmission applications, which will start working 
after  approval  by  the  Pakistani  authorities.  A  European  Migration  Liaison  Officer  will  be 
posted in the EU Delegation in Islamabad in March.  

Closer  operational  cooperation  is  also  under  way  with  the  Government  of  Pakistan  on 
countering  migrant  smuggling.  This  will  include  a  visit  to  EU  Agencies,  with  the  aim  to 
enhance  exchange  of  information  and  intelligence,  better  support  operational  investigations 
and  better  understand  regional  risks  and  threats.  In  2016  additional  funds  were  promptly 
mobilised to respond to the sudden increase in returns from  Pakistan and new measures are 
under  preparation  to  ensure  sustainable  reintegration,  access  to  livelihood  support  services 
and social cohesion in host communities in the region. 

A  call  for  proposals  for  projects  along  the  silk  route  aimed  at  enhancing  law  enforcement 
capability  and  capacity  in  Afghanistan  and  Pakistan  closed  in  February.  The  successful 
project  bid  will  enhance  the  ability  to  investigate,  prosecute  and  dismantle  organised  crime 
and migrant smuggling networks. 

On  Bangladesh,  the  EU  political  engagement  and  the  agreed  follow-up  to  the  migration 
dialogue of April 2016 has not yet brought progress on returns. The Bangladeshi authorities 
have  not  proved  ready  to  discuss  Standard  Operating  Procedures.  Discussions  on  a  new 
approach  and  the  need  to  anchor  cooperation  on  migration  as  part  of  broader  cooperation 
involving other policy areas such as security, education, development assistance and trade are 
under  way,  also  with  Member  States.  Recent  diplomatic  consultations  will  be  followed  up 
with  a  joint  mission  of  EU  and  Member  States  planned  for  March,  specifically  to  discuss 
return and reintegration. An awareness raising campaign on the dangers of irregular migration 
was launched at the beginning of 2017, while reintegration projects are being developed. 

The  engagement  of  Iran  in  a  comprehensive  migration  dialogue  as  a  key  element  of  the 
overall  EU-Iran  relations,  agreed  in  the  April  2016  Joint  Statement  between  High 
Representative/Vice-President Mogherini and Iranian Foreign Minister Zarif, has been put in 
motion  with  an  EU  technical  mission  in  February,  preparing  the  ground  for  the  a 
comprehensive  migration  dialogue  at  the  political  level.  The  EU  and  Iran  have  started 
mapping  out  areas  of  common  interest  in  relation  to  migration  management  with  a  view  to 
holding  annual  exchanges  on  these  issues.  Key  areas  include  the  legal  and  institutional 
framework, the knowledge base, legal channels of migration, border management, prevention 
of  irregular  migration,  protection,  and  the  regional  dimension.  In  addition,  the  EU  will  also 
continue to support Iran's long-standing efforts to integrate Afghan refugees. Iran continues to 
host  a  displaced  population  of  around  3  million  migrants.  EU  assistance  to  humanitarian 
partners complements the Iranian government's own efforts to assist vulnerable refugees and 
to ensure their access to basic services. 

4.  

Key tools and instruments  

Return policy  

The step change needed in the effectiveness of return inside the EU needs to be matched with 
work  with  third  country  partners.  So  far,  based  on  the  data  provided  by  the  EU  Member 
States,  there  has  been  no  or  only  limited  improvement  in  return  rates  for  the  five  priority 
countries.  

The renewed Action Plan on return proposes a number of concrete actions to ensure that those 
not  entitled  to  international  protection  are  identified  and  ready  to  be  returned  swiftly,  that 

15 

 
 
 
procedures are effective, thus closing loopholes in the system33. It contains concrete measures 
to  substantially  improve  return  rates  also  in  the  short  term.  Some  of  these  measures  can  be 
taken  at  Member  State  level  (for  example  increasing  awareness  about  the  possibility  of 
assisted voluntary return and reintegration), others require close cooperation at EU level (for 
example  aligning  the  level  of  assistance  offered  to  facilitate  returnees'  integration;  better 
operational cooperation among Member States, including through electronic tools; increased 
funding). The European Border and Coast Guard Agency is expected to play an increasingly 
important role in this.  

Engaging with third countries through the Partnership Framework, using all available policies 
and  tools34,  will  foster  better  cooperation  with  a  view  to  identifying,  re-documenting  and 
readmitting their nationals. Overall, tailor-made approaches should be used to identify all the 
interests, incentives and leverages at stake  with a partner country in order to achieve targets 
and  commitments  and  to  offer  specific  support  measures  by  the  EU  and  interested Member 
States to the partner country concerned, so as to ensure a better management of migration, and 
in  that  context  to  further  improve  cooperation  on  return  and  readmission.  The  EU  and 
Member  States  will  need  to  employ  their  collective  leverage  in  a  coordinated  and  effective 
manner to achieve this result. 

Refocusing other policy tools  

Other  policy  tools  have  been  harnessed  in  support  of  the  Partnership  Framework.  To  take 
advantage  of  the  preferential  trade  arrangements  agreed  for  Jordan,  the  first  companies  to 
benefit from simplified rules of origin requirements for Jordanian exports to the EU – which 
provide job opportunities to Syrian refugees alongside Jordanians – were selected in January 
2017.  

For students and researchers, by the end of 2016, the Erasmus+ and Marie Sklodowska Curie 
programmes  had  been  scaled  up  to  offer  8 000  mobility  actions  for  students  and  560  for 
researchers.  This  has  also  been  complemented  by  Member  States'  scholarships.  The 
opportunities for mobility will be part of the dialogues under the Partnership Framework. 

Research  and  innovation  can  also  provide  concrete  opportunities  and  actions  to  support  the 
Partnership Framework, such as PRIMA, the Partnership on Research and Innovation in the 
Mediterranean  Area,  that  addresses  root  causes  of  migration  by  developing  innovative 
solutions for sustainable agriculture and water management. 

A step further will be to bring legal migration fully into the Partnership Framework increasing 
the  impact  of  legal  migration  instruments  and  helping  to  reduce  the  resort  to  irregular 
channels.  Action  will  be  taken  in  this  area,  particularly  the  establishment  of  possible  "EU-
wide  offers"  on  legal  migration  vis-à-vis  key  third  countries,  as  well  as  in  the  area  of  visa. 
This  will  be  carried  out  through  close  and  constructive  cooperation  between  the  Member 
States and the Commission. 

Operational tools 

Increased use of EU Agencies  

The  expertise  of  EU  Agencies,  notably  the  European  Border  and  Coast  Guard  Agency  and 
Europol, is being used to provide more targeted support for risk analysis and for investigating 

33   COM(2017) 200 of 02.03.2017. 
34   No conditionality can be attached to needs-based humanitarian aid in line with the humanitarian principles. 

16 

 
 
 
 
 
 
 
                                                            
the  criminal  networks  behind  migrant  smuggling.  This  is  leading  to  concrete  results  in  the 
work with new partners such as Nigeria and Pakistan, replicating successful initiatives under 
way in Africa, Western Balkans, Turkey and the Eastern Neighbourhood countries.  

To  step  up  their  role  on  the  external  dimension  Eurojust  has  recently  invited  Niger  and 
Senegal  to  appoint  judicial  contact  points  within  their  Ministries  of  Justice  or  Prosecution 
Offices and will follow up with the other priority countries. 

European Migration Liaison Officers  

By  mid-March,  eleven  European  Migration  Liaison  Officers  will  have  been  deployed  to 
priority  third  countries  of  origin  and  transit35.  This  is  an  excellent  example  of  cooperation 
between the EU and the Member States, and will provide a focal  point for the full range of 
potential migration-related issues. 

EU Financing instruments  

The  EU  is  using  a  range  of  financing  instruments  to  support  the  implementation  of  the 
Partnership Framework. The most prominent remains the EU Trust Fund for Africa. The Trust 
Fund operates in a total of 26 countries, with the recent extension to Ghana, Guinea and Cote 
d'Ivoire36. It has opened the door to a new depth in cooperation by creating further incentives 
for cooperation in key areas of interest. 

Resources currently allocated to the EU Trust Fund for Africa amount to more than EUR 2.5 
billion,  including  EUR  2.4  billion  from  the  European  Development  Fund  and  several  EU 
budget financing instruments, and EUR 152 million pledged so far by EU Member States and 
other  donors  (Switzerland  and  Norway).  Nevertheless,  operational  delivery  under  the  EU 
Trust  Fund  should  be  accelerated,  and  Member  States  and  partners  should  ensure  that 
procedural issues do not stand in the way of operational results. 

Most  recently,  a  total  of  42  new  programmes  worth  EUR  587  million  were  agreed  in 
December 201637. This brought the total number to 106 adopted projects worth over EUR 1.5 
billion.  Programmes  contracted  so  far  amount  to  EUR  627  million.  Programmes  should 
increasingly  focus  on  migration-specific  projects  and  be  linked  to  results.  In  the  Joint 
Communication  on  the  Central  Mediterranean 38 ,  the  Commission  committed  to  make 
available  EUR  200  million  for  Trust  Fund  actions  in  North  Africa  in  2017,  with  a  priority 
focus  on  migration-related  projects  concerning  Libya.  The  Communication  also  invited 
Member  States  to  match  this  EU  contribution,  to  allow  to  expand  the  scale  of  the 
interventions and maximise impact on the ground.  

Other  funding  instruments  also  continue  to  contribute  to  migration.  In  December  2016, 
several projects for a total amount of EUR 15 million were launched under the Development 
Cooperation  Instrument,  with  the  aim  of  contributing  to  the  implementation  of  the  Rabat 
process.  The  majority  of  the  projects  will  be  implemented  by  civil  society  organisations  in 
areas such as migrant children protection, trafficking in human beings, diaspora, remittances 
and migrants' rights. 

35   Ethiopia,  Jordan,  Lebanon,  Niger,  Nigeria,  Pakistan,  Senegal,  Serbia,  Sudan,  Tunisia,  Turkey;  Liaison 

Officers to Mali and Egypt to be deployed in next months. 

36   Commission decision C(2017) 772. 
37   28 programmes under the Sahel/Lake Chad window (EUR 381 million); 11 programmes under the Horn of 
Africa  window  (EUR  169.5  million)  and  3  programmes  under  the  North  of  Africa  window  (EUR  37 
million). 

38   JOIN(2017) 4 final of 25.1.2017. 

17 

 
 
                                                            
The  implementation  of  the  Partnership  Framework  also  benefits  from  tools  such  as  Macro-
Financial Assistance39. In addition, the Commission proposed in September 2016 the External 
Investment Plan  including the European Fund for Sustainable Development. This will boost 
investments  and  job  creation  in  partner  countries.  The  December  European  Council 
underlined the need for swift adoption of the relevant legislation. It is of particular importance 
to adopt this in the first half of 2017. Given the potential contribution to the EU and Member 
States’  work  on  migration,  it  is  of  capital  importance  that  the  co-legislators  adopt  the 
legislation as soon as possible so that the Plan can become operational soon.  

International Financial Institutions, including the European Investment Bank, European Bank 
for  Reconstruction  and  Development,  the  World  Bank  Group,  the  Council  of  Europe 
Development Bank and the International Monetary Fund have all been preparing initiatives in 
support  of refugees40. The Commission has  played  an important  coordinating  role  to ensure 
complementarity between these initiatives. 

5.  

Conclusions  

Sustained work under the Partnership Framework has continued over the past months as set 
out  by  the  European  Council  in  December.  The  geographical  scope  of  the  initiatives  has 
broadened, packages are better tailored to our partners while more policies and tools are being 
harnessed  to  this  work.  However  much  remains  to  achieve,  notably  in  further  reducing 
hazardous journeys to Europe and in increasing returns.  

In  the  coming  months  all  players  should  step  up  efforts  to  take  forward  the  work  under  the 
Partnership Framework, as well as the new initiatives in the context of the Malta Declaration. 
Synergies will be in particular developed in the Sahel belt and the southern side of the Libyan 
border,  as  well  as  to  facilitate  the  swift  Assisted  Voluntary  Return  of  migrants  stranded  in 
Libya. 

The  Valletta  Senior  Official  Meeting  of  8-9  February  also  confirmed  the  link  between  the 
Partnership  Framework  and  the  Valletta  Action  plan.  It  is  clear  however  that  while 
cooperation  has  increased  in  a  true  spirit  of  partnership,  there  is  a  need  to  accelerate 
operational  delivery.  In  addition,  negotiations  on  the  European  Fund  for  Sustainable 
Development should be concluded by adoption in the first half of 2017, to allow the Fund to 
become operational as soon as possible.  

The June report on the Partnership Framework will be an opportunity to take stock, one year 
on from its launch. This report already demonstrates the multi-faceted and inter-linked nature 
of the efforts being made at all levels in order to address migration in a sustainable manner 
and  in  a  spirit  of  partnership.  It  is  essential  that  all  strands  of  activity  continue  to  run  in 
parallel,  with  clear  priorities  set,  and  with  the  contribution  of  all  to  the  shared  objective  of 
better management of migration.  

39   Macro-Financial Assistance is available to European Neighbourhood Policy countries that are experiencing 
a balance-of-payments crisis and helps covering acute external financing needs of the beneficiary country, 
hence strengthening its foreign exchange reserves. It also contributes – through targeted conditionality – to 
macroeconomic  stabilisation  by  supporting  the  structural  reform  agenda  of  the  beneficiary  country. 
Programmes have assisted Tunisia and Jordan. 

40   In areas such as reception infrastructure, support to SMEs and micro-enterprises, addressing root causes. 

18