JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL ELEMENTS FOR AN EU STRATEGY ON AFGHANISTAN
Date: 2017-07-24
Institutions: European Commission, European External Action Service
Subjects: Afghanistan, EU programme, cooperation policy, democratisation, economic development, establishment of peace, human rights, migration, position of women, social development

EUROPEAN 
COMMISSION 

HIGH REPRESENTATIVE
OF THE UNION FOR
FOREIGN AFFAIRS AND
SECURITY POLICY

Brussels, 24.7.2017  
JOIN(2017) 31 final 

JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE 
COUNCIL 

ELEMENTS FOR AN EU STRATEGY ON AFGHANISTAN 

EN 

   EN 

 
 
 
 
  
 
ELEMENTS FOR AN EU STRATEGY ON AFGHANISTAN 

Purpose 

Since 2001, the European Union (EU) and its Member States have partnered with Afghanistan 

and the wider international community in pursuit of a common strategic interest in combating 

extremism and terrorism while simultaneously working towards peace and development in the 

country.  

However,  in  recent  years  Afghanistan  has  been  confronted  with  a  deteriorating  security 

situation  and  increasing  insurgent  and  terrorist  pressure.  Despite  some  improvements, 

democratic institutions and the legal framework for elections are still weak. Human rights are 

precarious, in particular in relation to women and children. Afghanistan has made progress in 

its economic and social development but a fragile economic framework, lack of infrastructure 

and  high  numbers  of  Afghans  returning  from  neighbouring  countries,  put  this  progress  into 

danger.  Furthermore,  rising  insecurity  coupled  with  a  lack  of  economic  perspective  has  led 

many Afghans to leave the country, triggering an increased irregular migration flow, notably 

towards Europe.  

In  response  to  the  current  challenges  that  Afghanistan  faces,  and  in  line  with  the  Foreign 
Affairs Council conclusions of 18 July 20161, the EU and its Member States will need to have 

a  truly  comprehensive  strategy  to  support  the  country’s  development  to  a  self-reliable  and 

sustainable state.  

This focus of the new strategy is on shaping the necessary conditions for a political process 

that  can  pave  the  way  for  a  political  solution  to  the  conflict,  while  further  developing  the 

country’s institutions and economy to improve resilience and move it out of fragility, while 

also addressing migration-related issues.  

1. 

Political context 

Afghanistan has made progress in terms of economic and social development, with significant 

results  in  access  to  basic  healthcare,  basic  education,  and  women’s  empowerment  and 

1 Foreign Affairs Council of 18 July 2016: Council Conclusions on Afghanistan, doc. 11245/16 

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representation  over the last one and a half decades. GDP per capita  has  increased five-fold, 

and life expectancy has increased by almost 15 years.  

However, the risk of this progress eroding is apparent. Afghanistan’s triple transition in 20152 

– political/security/economic – put an additional pressure on the State, delaying the transition 

to  peace  and  jeopardising  development  gains  made  so  far.  Afghanistan  is  facing  an 
increasingly  volatile  security  situation3  while  struggling  with  a  fragile  economy  and  weak 

governance. In this context regional dynamics play an important role in particular in relation 

to security but also in economic terms.  

At  the  same  time  Afghanistan  is  confronted  with  an  unprecedented  increase  in  returns  of 

documented and undocumented Afghan nationals, mainly from Pakistan and Iran, which put 

major pressure on society. Furthermore, the worsening security situation, political instability 

and an economic crisis have led to increased migration to Europe. 

To  address  those  challenges  in  2016  the  international  community  reaffirmed  its  continued 

support  to  Afghanistan.  The  July  2016  NATO  summit  in  Warsaw  confirmed  international 

support  to  peace  and  stability  with  financial  commitments  for  the  security  sector  up  until 

2020. At the October 2016 Brussels Conference on Afghanistan, the international community 

ensured  continued  political  support  and  pledged  EUR  13.6  billion  in  financial  support,  for 

Afghanistan’s development agenda within the same time frame. The combined pledge of the 

EU  that  was  confirmed  at  the  Brussels  Conference  is  EUR  5  billion,  making  the  EU  as  a 

whole the largest development cooperation partner of Afghanistan. Regional stakeholders and 

the  international  community  reaffirmed  their  commitment  to  a  political  process  towards 

reconciliation and lasting peace. 

Furthermore,  the  EU-Afghanistan  Cooperation  Agreement  on  Partnership  and  Development 

signed on 18 February 2017 confirmed the EU’s commitment to Afghanistan’s development 

2  Afghanistan  assuming  responsibility  for  the  provision  of  security;  lower  financial  resources  due  to  cuts  in 
international spending related to the international troop reduction, coupled with knock-on effects of the global 
economic crisis; and a change in leadership following the 2014 presidential elections. 

3  In  2016,  UNAMA  documented  11418  civilian  casualties  (3498  deaths  and  7920  injured);  +2%  in  civilian 
deaths and +6% in civilians injured. + 3% increase in total civilian casualties compared to 2015. Since 2009, the 
conflict killed 24841 and injured 45347. 

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during its ‘Decade of Transformation’ (2015-2024)4 . The Agreement provides a framework 
for the EU’s support and enables the establishment of official dialogues in a number of areas.5  

The  2030  Agenda  for  sustainable  development  (the  ‘2030  Agenda’)  with  its  17  sustainable 

development goals provides a new reference framework of shared goals between developing 

and  developed  countries,  with  repercussions  for  both  Afghanistan’s  development  path  and 

European  support  to  it.  Also  the  new  European  Consensus  on  Development  builds  on  the 

priorities of the 2030 Agenda and provides the EU and its Member States with a new common 

vision for development policy which is relevant for Afghanistan. 

The  EU  will  continue  to  support  Afghanistan  politically,  financially  and  in  security  terms. 

Peace, security and development remain the primary and interconnected challenges and will 

be the basis of the new strategy.  

2. Objectives 

Given the challenges described above and taking into account achievements to date including 

the  previous  EU  strategy,  the  EU  should  focus  on  mutually  reinforcing  objectives  in  areas 

where it can add most value, namely: 

1.  Promoting peace, stability and regional security; 

2.  Strengthening democracy, the rule of law and human rights and promoting 

good governance and women empowerment; 

3.  Supporting economic and human development; and 

4.  Addressing challenges related to migration. 

4 Council Decision (EU) 2017/434 of 13 February 2017 on the signing, on behalf of the Union, and provisional 
application of the Cooperation Agreement on Partnership and Development between the European Union and its 
Member States, of the one part, and the Islamic Republic of Afghanistan, of the other part (OJ L 67, 14.3.2017, 
p. 1) and text of the Agreement (p. 3). Pending its entry into force, the Agreement will be applied provisionally 
in accordance with Article 3 of the Decision. 

5 Human rights, gender equality, good governance, migration, and economic and social development, including 
aspects of trade and investment and regional cooperation. 

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2.1. Promoting peace, stability and regional security 

Advocating  for  an  inclusive  political  process  leading  to  a  negotiated  peace  settlement; 

fighting  threats  from  the  narcotics  industry,  illegal  mining  and  other  illicit  economies; 

supporting the fight against corruption; cultivating a regional environment which is conducive 

to  an  Afghan-led  and  Afghan-owned  peace  process  by  encouraging  consensus  between  the 

key regional state actors and by assisting the government and civil society. 

Peace  in  Afghanistan  remains  elusive.  Afghanistan  has  been  facing  a  severe  conflict  for 

decades.  The  involvement  of  outside  forces  coupled  with  internal  conflicts  has  led  to  a 

complex conflict situation and the only way to resolve that is by political means. Peace is the 

precondition for economic growth: without peace, there is no sustainable development. 

To this end a number of regional and international peace initiatives have taken place over the 

past years. This includes the "Kabul Process on Peace and Security Cooperation" launched by 

the Afghan Government in June 2017. This process brings together a number of regional and 

international  stakeholders  and  can  give  new  impetus  to  efforts  leading  to  a  peaceful 

settlement. 

In  order  to  be  successful,  any  peace  process  has  to  be  inclusive,  Afghan-led  and  Afghan-

owned. It should represent all citizens and their legitimate interests that preserve the country’s 

unity, sovereignty, territorial integrity and the equal rights of all under the Constitution. Such 

a  process  must  lead  to  the  renunciation  of  violence  and  breaking  of  all  ties  to  international 

terrorism and respect for the Constitution, including its human rights provisions, notably the 

rights of women and children.  

Corruption and the illicit economy, primarily narcotics and illegal mining, also remain major 

critical  challenges  to  the  long-term  stability  and  sustainability  of  the  state,  while  providing 

significant funds to anti-government forces and criminal networks. 

The EU and its Member States are ready to strongly support peace in Afghanistan.6 To this 

end,  they  will  pursue  a  continued  close  partnership  with  relevant  international  stakeholders, 

notably the UN and NATO.  

6 The Global Strategy for the European Union’s Foreign and Security Policy of June 2016 has similarly set out 
the  EU’s  approach  to  contemporary  security  and  political  challenges,  with  the  comprehensive  approach  as  its 
guiding operational principle. In the context of Afghanistan, this means an integrated approach towards conflict, 

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Therefore, EU initiatives in this area should include: 

•  Supporting  an  Afghan-led  and  Afghan-owned  peace  and  reconciliation  process  that 

leads to a political settlement that avoids violence, rejects any link with terrorism, and 

respects  human  rights,  in  particular  the  rights  of  the  victims  of  the  conflict,  notably 

women and children. 

•  Promoting  an  international  and  regional  consensus  over  such  an  Afghan-led  and 

Afghan-owned peace process.  

•  Ensuring  EU  high  level  engagement  in  Afghan  related  regional/international  peace 

initiatives, including in the Kabul Process on Peace and Security Cooperation.  

•  Building the capacity of the Afghan government to reach out to all those involved in 

sincere  negotiations  on  peace  and  reconciliation,  including  support  to  the  Higher 

Peace  Council  and  the  implementation  of  the  peace  agreement  between  the  Afghan 

government and Hezb-e-Islami.  

•  Enhancing regional (economic) cooperation between Afghanistan and its neighbours. 

•  Strengthening  Afghan  and  regional  efforts  to  reduce  organised  crime  and  supporting 

the implementation of the Afghan national drug action plan. 

•  Strengthening  Afghanistan's  efforts  in  fighting  against  money  laundering  and 

countering terrorist financing, in accordance with international standards, notably the 

Financial Action Task Force (FATF) on money laundering. 

•  Supporting efforts to substantially reduce illegal mining activities.  

•  Supporting  civilian  aspects  of  security  sector  reform  in  line  with  the  government’s 

Roadmap,  including  the  professionalisation  of  the  police  and  strengthened  anti-

corruption efforts, including the fight against corruption in this area. 

acting  primarily  in  the  areas  of  security  and  development,  good  governance  and  human  rights  with  a  view  to 
strengthening state and societal resilience. 

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2.2. Strengthening democracy, the rule of law and human rights and promoting good 

governance and women empowerment 

Strengthen democratic oversight at national, provincial and district levels; support the conduct 

of credible, inclusive and transparent elections; improve capacity building in key institutions 

and  systems  of  governance;  strengthen  the  rule  of  law  and  the  justice  sector;  and  the 

protection  and  promotion  of  human  rights,  in  particular  the  rights  of  women  and  children, 

including in the context of the peace process. 

Despite  a  number  of  positive  steps  and  a  commitment  by  the  authorities  to  advance  in 

promoting  human  rights,  the  human  rights  situation  remains  precarious,  in  particular  for 

women  and  children  and  for  people  who  defend  human  rights.  Furthermore,  democratic 

principles  and  democratic  oversight  remain  a  challenge.  Democratic  institutions  are  often 

weak and confronted with corruption and opaque decision making.  

Ensuring  the  implementation  of  democratic  principles,  strengthening  the  rule  of  law  and 

advancing human rights protection are key elements to address such deficits. 

Afghanistan  needs  to  strengthen  its  democratic  institutions  and  democratic  oversight  and 

improve the quality of its public services. Government institutions should be complemented 

and  held  accountable  by  a  diverse  and  independent  media  and  a  pluralistic  and  active  civil 

society.  Greater  participation  and  representation  of  women  in  all  types  of  public  office  is 

crucial. Work should continue on the respect for the rule of law, including a well-functioning 

formal  judicial  system,  less  corruption  and  greater  accountability.  Credible,  inclusive, 

transparent elections with outcomes broadly accepted by all Afghans are needed to strengthen 

democratic  practices  and  values.  Electoral  reform  including  enforced  fraud  mitigation 

mechanisms will rebuild trust in broader democratic processes.  

Maintaining  the  right  to  freedom  of  assembly,  strengthening  freedom  of  expression  and 

supporting the freedom of the media are other areas that merit support. In addition, an end to 

the  culture  of  impunity  for  serious  war  crimes  and  human  rights  abuses  is  essential  in  the 

context of the peace processes. Such steps will help to ensure that Afghanistan’s democratic 

institutions  are  strengthened,  and  the  delivery  of  services  to  its  people  is  widened  and 

improved.  

The  EU’s  actions  in  Afghanistan  put  a  particular  emphasis  on  developing  the  rule  of  law, 

human  rights,  strengthening  democracy  and  promoting  good  governance.  The  EU  closely 

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follows  relevant  developments  in  these  areas  and  provides  support  and  assistance. 

Comprehensive  discussions  in  these  areas  are  taking  place  in  the  yearly  local  human  rights 

dialogues,  which  will  be  developed  further  to  a  structured  dialogue  under  the  Cooperation 

Agreement on Partnership and Development (CAPD). These priority areas are incorporated in 

EU development assistance.  

EU initiatives in this area should include: 

•  Supporting the implementation of the national action plan for UNSC resolution 1325 on 

women,  peace  and  security,  the  Women’s  Economic  Empowerment  Programme  and  the 

Citizens’ Charter throughout the country. 

•  Supporting the incorporation of the law on the Elimination of violence against women in 

the  penal  legislation  and  the  establishment  of  special  court  division  on  violence  against 

women and the promulgation of measures that aim to combat sexual harassment. 

•  Supporting 

improved  child  protection, 

including  by  drafting  and  adopting  a 

comprehensive child act and a national action plan on child protection. 

•  Supporting  the  fight  against  corruption  in  general  and  the  national  anti-corruption 

strategy. 

•  Strengthening  the  cooperation  in  fighting  fraud  affecting  EU  funds  disbursed  to 

Afghanistan.  

•  Developing  public  awareness  on  the  importance  of  elections  and  other  civic  education 

election related initiatives. 

• 

Increasing voter participation, especially for female voters and vulnerable groups. 

•  Supporting  the  main  electoral  bodies  (Independent  Elections  Commission,  Electoral 

Complaints  Commission)  and  the  drafting  of  electoral  legislation  and  regulations; 

ensuring  fraud  mitigation  and  strengthening  the  integrity  of  the  electoral  process, 

independent oversight of elections by domestic and international observers; strengthening 

the electoral dispute resolution system. 

•  Providing  continued  support  to  an  effective  justice  and  law  and  order  system.  This 

includes  supporting  judicial  system  sector  reforms  based  on  the  rule  of  law,  the 

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development  of  a  nationally-owned  transitional  justice  process  that  includes  addressing 

impunity, with a particular focus on the rights of victims. 

•  Providing continued support to a more effective, responsive and transparent civilian police 

force, including by supporting institutional reforms and capacity building, drawing on the 

experience from the EUPOL mission which ended in 2016. 

•  Developing  the  EU-Afghanistan  local  human  rights  dialogue  further  to  a  structured 

dialogue under the Cooperation Agreement on Partnership and Development.  

•  Supporting the Afghanistan Independent Human Rights Commission.  

•  Assisting with the drafting of relevant human rights legislation.  

• 

Increasing the awareness of Afghan institutions on the importance of freedom of assembly 

and freedom of expression. 

•  Continuing to advocate for a moratorium on the death penalty and for the ratification of 

relevant international conventions.  

•  Continuing to support the fight against torture and ill-treatment and strong advocacy for 

the ratification of the Optional Protocol to the Convention Against Torture. 

• 

Improving  the  dialogue  and  cooperation  with  the  International  Criminal  Court  and 

promoting  its  effective  functioning,  in  line  with  the  EU-Afghanistan  joint  commitment 

expressed in the Cooperation Agreement on Partnership and Development (Article 8). 

•  Continuing to support capacity building for Afghan civil society. 

•  Strengthening the fight against corruption and fraud, including supporting anti-corruption 

and anti-fraud institutions. 

2.3. Supporting economic and human development 

Including  the  establishment  of  a  transparent  economic  framework  to  encourage  investment, 

raise  revenue  and  allocate  finances,  strengthen  resilience  and  improve  access  to  health, 

education  and  affordable,  sustainable  energy  services,  including  for  the  most  vulnerable 

segments of the population, improve regional connectivity. 

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Afghanistan  continues  to  have  some  of  the  lowest  human  development  indicators  in  the 

world:  36 %  of  Afghans  live  in  poverty.  Almost  two  thirds  of  Afghans  are  illiterate  and  an 

estimated  40 %  of  Afghans  are  unemployed.  This  is  despite  recent  progress  on  economic 

reforms which has led to increased government revenues, and a better economic framework 

with Afghanistan joining the World Trade Organization in 2016. Poverty risks were increased 

by the high number of returnees from neighbouring countries, conflict-induced displacement 

and climate change impacts and natural disasters. 

To  address  those  issues  the  Afghan  government  has  committed  to  a  comprehensive  reform 

programme at the Brussels Conference on Afghanistan. At the core of the partnership is the 

Afghanistan National Peace and Development Framework (ANPDF), which complements the 

Self-Reliance through Mutual Accountability Framework (SMAF). Newly designed national 
priority  programmes  (NPPs)7  translate  this  framework  into  sectorial  goals  and  policies 

focusing  on  critical  issues  such  as  service  delivery  through  the  Citizens  Charter,  women’s 
economic empowerment, agriculture, urban development and national infrastructure.8 

Strengthening the private sector is key to developing Afghanistan’s economy. It is important 

to  ensure  an  enabling  regulatory  framework  to  promote  stronger  private  sector  growth  and 

improve  investor  confidence.  The  agriculture  sector  plays  a  central  role  in  economic 

development.  Enhancing  resilience,  including  to  climate  change  impacts  on  the  rural 

economy, will  be  critical for achieving the levels of growth needed to create  sufficient jobs 

and  increase  domestic  revenue.  Progress  in  these  areas  would  reduce  poverty,  improve 

livelihoods,  strengthen  the  delivery  of  basic  services,  especially  health  and  education,  and 

accelerate  social  and  human  development  —  which  remain  well  below  regional  levels. 

Addressing gender inequalities and strengthening women’s rights needs to remain central to 

all efforts to stimulate sustainable development. 

Beyond the rural economy, Afghanistan has considerable potential for developing extractive 

industries.  These  natural  resources  should  also  contribute  to  building  an  inclusive  economy 

and  should  benefit  national  development  in  a  fair  way.  Improving  mining  governance  and 

7  (1)  Private  Sector  Development,  (2)  National  Infrastructure  and  Connectivity,  (3)  Effective  Governance, 
(4) Justice  and  Legal  Sector  Reform,  (5)  Citizens’  Charter,  (6)  Comprehensive  Agricultural  Development, 
(7) Urban  Development,  (8)  National  Mineral  and  Resource  Development,  (9)  Human  Capital  Development, 
(10) Women’s Economic Empowerment. 
8 For deliverables of the Brussels Conference on Afghanistan in general and the five National Priority Plans in 
particular: http://policymof.gov.af/bca/npps 

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ensuring  full  transparency  in  the  management  of  the  extractive  industries  are  therefore 

important to ensure that the population benefits in full from these resources. 

Enhanced  regional  and  international  economic  and  trade  cooperation  could  also  play  an 

important role in stimulating the Afghan economy and in promoting stability. Initiatives that 

improve regional connectivity and enable increased trade throughout the region, by promoting 

transit, transport and energy corridors are therefore vital. 

The EU should support: 

• 

Implementing  the  Afghanistan  National  Peace  and  Development  Framework  which 

sets  out  the  government’s  strategic  policy  priorities  and  other  related  results  of  the 

Brussels Conference on Afghanistan deliverables, including peacebuilding. 

•  Strengthening basic social services, including for the most vulnerable segments of the 

population, in particular in education and health. 

•  Reinforcing the role of rural economies and agriculture as the current main source of 

employment generation, including value chains.  

• 

Implementing food and nutrition security policies with the aim of strengthening rural 

community resilience and the prevention of food crises.  

•  Strengthening the links between humanitarian and developmental efforts. 

•  Stimulating  sustainable  and  climate-resilient  practices  and 

the  promotion  of 

sustainable land-use and water management. 

•  Supporting  Afghan  efforts  to  exploit  the  potential  of  sustainable  management  of 

natural resources. 

• 

Increasing regional connectivity, notably in the frameworks of the Regional economic 

cooperation  conference  on  Afghanistan  and  the  Heart  of  Asia  confidence  building 

measures  to  further  improve  transit,  transport  and  energy  corridors  and  enable 

increased trade throughout the region. 

• 

Increasing  aid  effectiveness  and  restoring  fiscal  sustainability  through  progress  in 

public financial management and greater domestic revenue mobilisation, in line with 

government  policies.  At  the  same  time  continuing  to  explore  possibilities  for 

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providing  on-budget  assistance  aligned 

to  outcome-focused  national  priority 

programmes.  Ensuring  mutual  accountability  including  through  monitoring  the 

implementation  of  the  self-reliance  through  mutual  accountability  framework  and  its 

indicators. 

•  Strengthening the presence and engagement of international financial institutions such 

as the World Bank, the Asian Development Bank, as well as the European Investment 

Bank  and  the  development  finance  institutions  of  the  Member  States,  to  promote 

infrastructure  development,  SMEs  and,  notably,  reform  of  the  mining  industry, 

including by attracting foreign investment. 

2.4 Addressing challenges related to migration 

Shaping a global response based on solidarity and shared responsibilities by continuing and 

reinforcing  cooperation  within  relevant  international  frameworks  and  regional  structures; 

Implementing  the  EU-Afghanistan  Joint  Way  Forward  on  migration  issues;  Supporting  a 

viable  solution  to  the  regional  dimension  of  the  forcefully  displaced  Afghan  nationals  by 

ensuring  a  gradual,  orderly,  safe  and  dignified  return  and  sustainable  reintegration  process 

from neighbouring countries to Afghanistan. 

The  worsening  security  situation,  political  instability  and  an  economic  crisis  have  eroded 

public  trust  in  Afghanistan.  It  led  to  more  people  leaving  the  country  and,  enabled  by  the 

increased  activity  of  smuggling  networks,  it  had  immediate  effects  on  Europe.  In  2015  and 

2016 Afghans were the second largest group of irregular migrants into the EU. In parallel, at 

regional level, the situation of the  displaced Afghan  nationals in the neighbouring countries 

came  to  the  forefront  in  2016,  a  year  that  marked  an  unprecedented  increase  in  returns  of 

Afghans  to  Afghanistan,  mainly  from  Pakistan  and  Iran.  This  put  a  significant  pressure  on 

Afghanistan  to  absorb  the  returnees  and  provide  for  their  and  provide  for  their  sustainable 

reintegration.  It  has  also  revived  the  discussion  on  the  need  to  find  the  best  approach  to 

address this long- standing issue at international level. Furthermore, large numbers of Afghan 

nationals are internally displaced, largely due to the conflict situation, but also in relation to 

natural disasters and climate change. 

The EU reacted to these developments by promoting a comprehensive approach on migration 

focusing both on short-term needs and on the long-term perspective. The EU is committed to 

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continue  providing  support  to  Afghanistan  to  achieve  well-managed  migration  policies, 

including  by  addressing  the  root  causes  of  irregular  migration  and  forced  displacement 

through  enhanced  support  for  economic  development  and  by  ensuring  the  sustainable 

reintegration  of  returning  Afghan  nationals.  This  includes  the  protection  and  sustainable 

reintegration  of  Afghan  nationals  internally  displaced  in  their  region,  as  well  as  of  Afghan 

nationals returning from Europe and the neighbouring countries, mainly Pakistan and Iran.  

In order to step up political cooperation on a number of issues of mutual concern, in October 
2016  the  EU  and  Afghanistan  agreed  on  a  ‘Joint  Way  Forward  on  migration  issues’9.  The 

Joint  Way  Forward  covers  the  return,  readmission  and  reintegration  of  irregular  migrants, 

information  and  awareness-raising,  as  well  as  fighting  against  migrant  smuggling  and 

trafficking in human beings. This is complemented by bilateral memoranda of understanding 

concluded  in  parallel  by  several  EU  Member  States.  An  EU-Afghanistan  Joint  Working 

Group on the implementation of the Joint Way Forward now monitors its implementation.  

In  December  2016,  Afghanistan  adopted  a  Policy  Framework  for  Returnees  and  Internally 

Displaced  Persons  (IDPs),  identifying  the  main  steps  to  be  taken  for  the  sustainable 

integration of returnees and IDPs.  

Building on the existing actions and measures, the EU initiatives on migration should include: 

At bilateral level: 

•  Full  implementation  of  the  EU-Afghanistan  Joint  Way  Forward  on  migration  issues 

and  of  the  bilateral  memoranda  of  understanding  concluded  between  EU  Member 

States and Afghanistan. 

•  Based  on  the  outcome  of  the  implementation  of  the  Joint  Way  Forward  and  in  line 

with the Cooperation Agreement on Partnership and Development provisions the EU 

and Afghanistan will explore the possibility of negotiating a readmission agreement. 

•  Support in addressing the root causes of irregular migration and forced displacement, 

to create an environment offering Afghan people an alternative to irregular migration. 

•  Support and enabling the sustainable reintegration of returnees from the EU and non-

EU countries (e.g. Pakistan and Iran) through a community-based approach, looking at 

9  Joint  Way  Forward  on  migration  issues  between  Afghanistan  and  the  EU  signed  4 October  2016 
https://eeas.europa.eu/sites/eeas/files/eu_afghanistan_joint_way_forward_on_migration_issues.pdf 

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social  cohesion  and  potential  frictions  in  host  communities,  providing  vocational 

training and measures for job creation and market access, including in agriculture and 

crafts and handicraft production, and supporting business start-ups and the use of skills 

and  qualifications  acquired  abroad  to  integrate  returning  Afghan  nationals  into  a 

vulnerable economy with high unemployment. 

•  Support  to  the  fight  against  trafficking  in  human  beings  and  smuggling  of  migrants, 

including strengthened border controls. 

At regional level: 

•  Continued  political  dialogue  both  at  bilateral  and  regional  level  as  part  of  a 

comprehensive approach based on dialogue, respect of humanitarian law and aiming at 

an orderly, safe and dignified return and sustainable reintegration process. 

•  Support  to  a  gradual,  dignified  and  manageable  return  process  of  migrants  from 

neighbouring countries to Afghanistan. In cooperation with relevant interested parties, 

including local authorities and international organisations such as the United Nations 

High  Commissioner  for  Refugees  and  the  International  Organisation  for  Migration, 

implementation of a regional framework for displaced Afghans in order to enable the 

sustainable reintegration of returnees. 

At multilateral level: 

•  Coordinating in view of the forthcoming Global compacts on migration and refugees 

and  their  implementation;  promoting  increased/targeted  dialogue  under  the  Budapest 

process  and  its  Silk  Route  Partnership  for  Migration,  as  well  as  within  the  Heart  of 

Asia framework and the South Asian Association for Regional Cooperation (SAARC). 

3. 

Conclusion 

Despite substantial international efforts over a long period of time, Afghanistan is still facing 

a serious conflict situation which substantially hampers its economic and social development.  

Therefore,  at  the  Brussels  Conference  on  Afghanistan,  both  the  EU  and  the  international 

community  underlined  their  collective  commitment  to  deepen  and  strengthen  their 

cooperation, helping Afghanistan to create a political, social and economic environment that 

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will allow the country to consolidate peace, security, sustainable development and prosperity. 

The aim is to achieve Afghanistan’s self-reliance in the transformation decade (2015-2024). 

The new EU strategy will help to achieve this by focussing on the following objectives: 

•  Promoting peace, stability and regional security; 

•  Strengthening democracy, the rule of law and human rights and promoting 

good governance and women empowerment; 

•  Supporting economic and human development and 

•  Addressing challenges related to migration. 

Furthermore, the new strategy will enable the EU and its Member States to better align their 

actions. In this context, the Foreign Affairs Council conclusions of 12 May 2016 confirmed 

the value of joint programming for increased strategic analysis, coordination on the resources 

pledged at the Brussels Conference and potential for joint implementation. At the same time 

the  new  strategy  is  sufficiently  flexible  to  both  influence  and  respond  appropriately  to  the 

range of potential scenarios in Afghanistan.  

In  2016,  the  Afghan  government  has  made  strong  commitments  towards  self-reliance, 

responsibility and ownership of its political course and development policy. The EU, as part 

of  the  wider  international  community,  remains  firmly  committed  to  supporting  the 

government  and  the  people  of  Afghanistan  in  this  endeavour.  Afghanistan’s  continued 

engagement and appropriation are essential for this to be successful. 

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