REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL Fifth Progress Report on the Partnership Framework with third countries under the European Agenda on Migration
Date: 2017-09-06
Institutions: European Commission, Secretariat-General
Subjects: EU migration policy, Mediterranean region (EU), aid to refugees, international cooperation, migrant, migration control, migratory movement, refugee, return migration, third country

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   EN 

   EUROPEAN COMMISSION  Brussels, 6.9.2017  COM(2017) 471 final   REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL Fifth Progress Report on the Partnership Framework with third countries under the European Agenda on Migration    
 
 
1. 

Introduction 

This  Fifth  Progress  Report  provides  an  update  on  the  implementation  of  the  Partnership 
Framework, as well as the actions taken in order to respond to the lessons learned identified in 
the Fourth Progress Report.1 

Over the summer season, there has been a reduction in the number of crossings of irregular 
migrants through the Central Mediterranean route. In the months of July and August, 15 373 
arrivals  were  recorded  in  Italy,  compared  to  44 846  in  the  same  months  in  2016.  Overall, 
99 846 migrants have arrived so far in 2017 (until 4 September); in the same period in 2016 
115 068  migrants  arrived.  According  to  the  International  Organisation  for  Migration,  2  410 
people  have  died  at  sea  so  far  in  2017  while  attempting  to  reach  the  European  shores,  but 
there were only 19 deaths recorded in all of August. These trends reflect the enhanced efforts 
carried out jointly by Italy and the European Union, in line with the Action Plan on measures 
to support Italy2, to step up cooperation with countries of origin and transit along the route, in 
particular  with  Libya,  as  well  as  the  good  collaboration  with  the  Libyan  authorities.  The 
initiatives  set  in  motion  to  reinforce  the  Libyan  Coast  Guard's  capabilities  for  maritime 
surveillance  and  anti-smuggling  are  starting to  bear  fruit.  New  elements  were  also  added  to 
the  ongoing  cooperation  with  Libya,  as  a  new  multi-annual  project  to  enhance  border 
surveillance for Libya funded under the EU Trust Fund for Africa was approved in July 2017, 
for a total amount of EUR 46.3 million3.  

Since the Fourth Progress Report, arrivals along the Western Mediterranean route have shown 
an upward trend, with the total number of arrivals to Spain in 2017 up to 16 August reaching 
13 826, which represents an increase of 115 % compared to the same period in 2016 (6 409 
arrivals),  highlighting  once  again  the  importance  of  continuous  vigilance  against  possible 
emergence of alternative routes. 

Significant  progress  has  also  been  made  in  establishing  migration  partnerships  with  further 
Western  African  countries,  as  part  of  the  effort  to  reduce  pressure  on  the  Central 
Mediterranean  route.  In  the  Action  Plan  on  measures  to  support  Italy,  the  Commission 
included resettlement pledging for persons in need of protection in countries along the route, 
as part of a broader resettlement exercise launched by the Commission for 2018. The pace of 
implementation  of  programmes  approved  under  the  EU  Trust  Fund  for  Africa  has  further 
accelerated, with 169 contracts signed for a total amount of over EUR 1.2 billion across the 
three regions4 as of 4 September, a progress which should be accompanied by timely project 
implementation on the ground.  

Against this background, a number of weaknesses identified in the previous Reports remain. 
In particular, formal cooperation on readmission and return with some of the priority countries 
has  continued  to  stall.  This  points  to  the  need  to  identify  and  use  appropriate  incentives  to 
bring to bear in the negotiations on readmission agreements, including through visa policy5, or 

1   Fourth  Progress  Report  on  the  Partnership Framework  with  third  countries  under  the European  Agenda on 

Migration, COM (2017) 350 final 13.6.2017. 

2   Action plan on measures to support Italy, reduce pressure along the Central Mediterranean route and increase 

solidarity, SEC(2017) 339 of 4.7.2017. 

3   Out of which EUR 42.2 million are funded by the EU Trust Fund for Africa, EUR 2.2 million by Italy and 

EUR 1.8 million by the Internal Security Fund. 

4   Sahel region and Lake Chad area, Horn of Africa, North of Africa. 
5   No  conditionality  can  be  attached  to  the  needs  based  humanitarian  aid  in  line  with  the  Humanitarian 

Principles. 

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to  explore,  if  necessary,  alternative  practical  arrangements  separate  from  negotiated 
agreements leading to equivalent results in terms of cooperation on actual returns. The rate of 
return  from  Member  States  remains  low,  reflecting  also  the  need  to  step  up  internal 
coordination. 

Diplomatic contacts and multilateral discussion between the EU, Member States and countries 
or  origin  or  transit  have  intensified  over  the  previous  months,  including  with  the  second 
meeting of the Contact Group for the Central Mediterranean Route6 and the Paris meeting of 
28 August7, reflecting the need for an intensified effort to capitalise on the progress made so 
far  under  the  Partnership  approach  and  achieve  lasting  results  in  terms  of  migration 
management along the Central Mediterranean route. 

2. 

Progress and results 

2.1. Priority countries 

Niger 

Cooperation with  Niger continues to be good and constructive, including stepped up border 
control.  Supported  by  EU  experts,  the  authorities  have  now  drafted  the  Action  Plan  of  the 
National Migration Strategy, and both documents are soon to be formally adopted. A top-up 
of EUR 50 million to the budget support programme under the EU Trust Fund for Africa was 
signed  on  21  June  in  Niamey  by  the  Nigerien  Minister  for  Finance,  the  Head  of  EU 
Delegation  and  the  Italian  Ambassador.  This  additional  contribution  aims  at  enhancing  the 
state  capacities  in  the  sectors  of  security,  counter  smuggling,  and  include  addressing 
trafficking in human beings. The first payment, amounting to EUR 10 million, was disbursed 
in  early  July.  In  order  to  support  the  resilience  of  those  local  communities  that  previously 
benefitted  from  trafficking  activities  in  the  region,  it  is  essential  that  projects  to  support 
livelihoods and build alternatives to trafficking are fully implemented without delay. 

Niger  has  continued  to  deploy  important  efforts  to  prevent  irregular  migration  and  fight 
smugglers. So far in 2017 a number of operations have led to the arrest of 101 people brought 
before court, 79 people arrested for smuggling related crimes as well as the confiscation of 74 
vehicles  and  motorcycles.  The  number  of  Assisted  Voluntary  Returns  has  continued  to 
increase;  in  2017,  by  1  September,  some  4 000  migrants  have  returned to  their  countries  of 
origin  with  support  through  the  EU  Trust  Fund  for  Africa  –  International  Organisation  for 
Migration joint initiative for Migrant Protection and Reintegration. 

The Instrument contributing to Stability and Peace is also starting a project to improve basic 
services and resilience in peripheral regions on migration routes in north-eastern Niger. 

Rerouting of migratory flows needs constant monitoring. Increased border controls, including 
by Algeria, may  indeed be offset by a development of new routes. Information  on evolving 
routes  is  actively  exchanged  within  the  platform  established  to  this  end  by  the  Nigerien 

6   Meetings of the Ministers of Interior of the Contact Group were held in Rome on 19-20 March and in Tunis 
on 24 July 2017. Participants in the Tunis meeting were the Ministers of Interior of Algeria, Austria, Chad, 
France,  Germany,  Italy,  Libya,  Mali,  Malta,  Niger,  Slovenia,  Switzerland,  Tunisia,  Commissioner 
Avramopoulos, and the Minister of Interior of Estonia, the country which holds the Council Presidency of the 
European Union. 

7   http://www.elysee.fr/declarations/article/declaration-conjointe-relever-le-defi-de-la-migration-et-de-l-asile/ 

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authorities.8 The European Border and Coast Guard Agency has deployed a liaison officer to 
Niamey to support the work. 

Regionalisation  of  Common  Security  and  Defence  Policy  activities  in  the  Sahel  has 
accelerated, and the progressive deployment of Internal Security and Defence Experts in G5 
Sahel countries will help increase future cooperation with the authorities, also in the field of 
border  management.  The  full  operationalisation  of  the  Agadez  field  office  has  allowed 
EUCAP  Sahel Niger to expand  its activities in northern Niger, increase the number of field 
visits in the different regions to implement projects, deliver training, identify further needs of 
the law enforcement authorities, and contribute to the mapping of irregular migration flows. 
During an exploratory mission in July to Madama, which is an important hub for smuggling 
of migrants as well as for trafficking in human beings, representatives of EUCAP Sahel Niger 
were  accompanied  by  an  expert  from  the  EU  Border  Assistance  Mission  (EUBAM)  Libya. 
Further visits, with increased and focused advice and training (e.g. on forgery of documents, 
drug trafficking) may take place when the security situation allows.  

On  this  basis  the  High  Representative/Vice-President  is  finalising  a  proposal  for  a  further 
strengthening  of  EUCAP  Sahel  Niger  and  a  dedicated  mission  will  visit  the  country  to 
operationalise the agreements reached at the Paris meeting of 28 August. 

Nigeria 

Nigeria  remains  the  main  country  of  origin  of  irregular  arrivals  to  Europe  (in  2017,  until  4 
September, 16 671 irregular entries were reported) and one of the main destinations for return 
operations  organised  by  the  European  Border  and  Coast  Guard  Agency,  with  already  three 
operations  having  taken  place  since  June.  The  government  deployed  two  Nigerian  liaison 
officers  to  Italy,  funded  by  the  European  Border  and  Coast  Guard  Agency,  to  facilitate  the 
identification  of  irregular  migrants  and  increase  the  number  of  returns.  Regrettably,  it  has 
proven  difficult  to  set  a  date  for  the  second  round  of  negotiations  on  the  EU-Nigeria 
readmission agreement. 

It is important that the negotiations on the possible agreement, including on flanking measures 
to  facilitate  voluntary  returns  and  socio-economic  integration  of  migrants  in  their  home 
communities, resume as soon as possible with the aim to reach agreement ahead of the next 
high-level political dialogue. 

Nigeria  continues  to  cooperate  closely  with  the  International  Organisation  for  Migration  to 
facilitate the Assisted Voluntary Return of its own nationals from Niger and Libya, with more 
than 2 770 having been helped to return so far in 2017, with support by the EU Trust Fund for 
Africa  –  International  Organisation  for  Migration  joint  initiative  for  Migrant  Protection  and 
Reintegration, and other donors. 

Nigeria  remains  the  main  non-EU  country  of  origin  for  victims  of  trafficking  in  human 
beings, predominantly women and girls trafficked for the purpose of sexual exploitation in the 
EU.9 EUR 10 million have been allocated through the European Development Fund and the 

8   With participation of the EU Delegation, the European Migration Liaison Officer and the liaison officer from 
the  European  Border  and  Coast  Guard  Agency  deployed  in  Niamey  on  1  August,  EUCAP  Sahel  Niger, 
interested EU Member States and the International Organisation for Migration. 

9   In June 2017, the European Asylum Support Office (EASO) published a Country of Origin Information 

report on Nigeria 

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EU Trust Fund for Africa to a project addressing trafficking in human beings and smuggling 
of  migrants.  The  project  to  be  launched  in  October  will  involve  the  Nigerian  Immigration 
Service  and  the  National  Agency  for  the  Prohibition  of  Trafficking  in  Persons.10  This  work 
would  benefit  from  further  support  through  relevant  EU  Agencies  in  cross-border  cases  of 
trafficking  in  human  beings,  as  well  as  of  smuggling  of  migrants,  in  particular  with  the 
involvement of Europol and Eurojust. 

Senegal 

Senegal  continues  to  be  a  major  country  of  origin  of  irregular  migrants;  in  2017  until  4 
September, 5 526 irregular Senegalese migrants have arrived in Italy. In order to facilitate the 
identification and return of irregular migrants, Senegal has confirmed its intention to send a 
team to Italy. A proposal from the Italian government to the Senegalese National Police has 
been sent and a positive response is expected soon. A new agreement on migration has been 
signed  with  Spain  building  on  the  existing  one  and  the  long-standing  good  cooperation  in 
place e.g. on coastal surveillance and financial assistance. 

However,  progress  on  returns  from  the  EU  has  been  limited.  The  number  of  positive 
responses  to  requests  for  consular  travel  documents  remains  low.  The  Memorandum  of 
Understanding  between  the  European  Border  and  Coast  Guard  Agency  and  the  Senegalese 
authorities,  concluded  on  2  June  in  Dakar,  is  to  be  signed  shortly.  The  establishment  of  an 
Africa Frontex Intelligence Community Risk Analysis Cell in Senegal will be ensured under 
the already signed dedicated project led by the European Border and Coast Guard Agency. 

In  terms  of  Assisted  Voluntary  Returns,  Senegal  has  facilitated  an  increasing  number  of 
returns to Senegal, with more than 1 764 returnees in 2017 until 1 September, of which more 
than  1 058  from  Niger  and  671  from  Libya.  Equally,  a  migrant  smuggling  network  was 
dismantled by the Senegalese authorities in June 2017. Senegal is also finalising its national 
migration policy which will lead to the endorsement of policy and strategic plans supported 
by a project on migration governance funded under the EU Trust Fund for Africa for EUR 9.5 
million. In general, out of the EUR 161.8 million allocated to Senegal in projects under the 
EU  Trust  Fund  for  Africa,  EUR  104.3  million  (64%)  has  been  contracted.  This  includes 
concrete  actions  to  prevent  irregular  migration,  in  particular  in  the  field  of  employment 
creation. 

Mali 

Mali is in the top 10 of countries of origin of irregular migrants in the EU, and remains one of 
the  main  countries  of  transit.  There  have  been  5 990  irregular  entries  by  Malians  to  the  EU 
since 1 January 2017 (until 4 September). The return rate remains low and cooperation should 
be  stepped  up.  Some  positive  progress  has  been  made  in  the  delivery  of  consular  travel 
documents  for  some  of  the  Malian  citizens  already  identified  for  return,  but  a  speedier 
delivery is needed for the remaining cases. Mali needs to deliver on its commitment, made at 

(https://coi.easo.europa.eu/administration/easo/PLib/EASO_Country_Focus_Nigeria_June2017.pdf) and 
organised a Practical Cooperation meeting on Nigeria in Rome with the aim of gaining a better understanding 
of the Nigerian caseload. 

10   The recently appointed Director-General of the National Agency for the Prohibition of Trafficking in Persons 
has also called for enhanced cooperation with EU destination countries for Nigerian victims of trafficking, to 
step up prosecution of perpetrators, including through joint investigations and operations, and meetings with 
Italian law enforcement authorities took place to that end.  

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the highest political levels, to ensure the effective return of irregular migrants who have been 
identified  through  ad  hoc  missions  or  other  means  and,  more  importantly,  should  move 
towards a more structured cooperation on identification and return, based on best practices. 

The  Malian  authorities,  supported  by  the  EU  Trust  Fund  for  Africa  –  International 
Organisation  for  Migration  joint  initiative  for  Migrant  Protection  and  Reintegration,  have 
continued their efforts to facilitate the voluntary return  of Malian citizens  stranded in  Niger 
and Libya, with more than 800 persons having been assisted in 2017. In addition, support for 
voluntary return of vulnerable migrants stranded in Mali has led to the assisted return of 19 
persons to their countries of origin since May 2017. 

A national consultation process on migration took place in June to further develop the 2015 
National Strategy on Migration. The process, which involved the diaspora, raised awareness 
also  on  the  anti-smuggling  law,  further  supporting  their  implementation  and  promoting 
dialogue on migration with civil society. 

The political and security situation in northern and central Mali has deteriorated further since 
the Fourth Progress Report. To assist the government to exercise stronger control over border 
areas with neighbouring countries like Niger and Burkina Faso discussions are ongoing on the 
possibility  to  finance  under  the  EU  Trust  Fund  for  Africa  a  programme11  supporting  basic 
social  services  to  the  population  in  the  regions  of  Mopti  and  Segou.  In  August  2017,  the 
Council  also  adopted  a  Decision12  under  Article  28  of  the  Treaty  on  European  Union 
authorising a new EU stabilisation action to support the Malian authorities in countering the 
growing insecurity in the central regions of Mopti and Segou and to re-establish and expand 
the civilian administration in these areas. The EU is now extending strong support, financial 
(EUR  50  million),  but  also  through  the  regionalisation  efforts  of  the  Common  Security  and 
Defence Policy, to the establishment of the G5 Sahel Joint Force that will enhance control of 
internal borders of the G5 Sahel countries and help fight against terrorism, organised cross-
border crime and address trafficking in human beings. 

EUCAP  Sahel  Mali  has  further  consolidated  its  support  to  the  Malian  law  enforcement 
authorities and related Ministries in the areas of border security and border management. For 
instance,  the  National  Policy  on  Borders  and  its  Action  Plan  were  recently  validated  by  the 
authorities, which should lead to a National Strategy on Borders. EUCAP Sahel Mali is also 
supporting  the  Border  Police  reorganisation  and  works  in  close  coordination  with  the  EU 
Delegation to provide strategic advice for the implementation of projects under the EU Trust 
Fund for Africa.13 

Ethiopia 

Cooperation on migration has so far yielded mixed results. On the one hand, Ethiopia's efforts 
to fight against networks of smugglers of migrants have led since the beginning of 2017 to a 
decrease in the number of irregular arrivals of nationals (mainly Eritreans and Somalis) from 

11   To complement the Programme of support for enhanced security in the Mopti and Gao regions and for the 

management of border areas. 
12   Council Decision 2017/1425. 
13   EUCAP Sahel Mali regularly liaises with the EU Training Mission in Mali as well as EUCAP Sahel Niger 

and EUBAM Libya. 

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countries in the Horn of Africa to the EU, compared to the same period in 201614. Ethiopia is 
making further progress on its commitments towards the high number of refugees that it hosts 
–  including  through  a  comprehensive  review  of  its  Refugee  Proclamation  with  the  right  to 
work, access to education, as well as freedom of movement – and has taken concrete steps to 
provide  sustainable  solutions  to  and  increase  opportunities  for  refugees;  a  significant  step 
given that without such prospects refugees risk falling victim  to  the criminal  networks. The 
overall political situation in Ethiopia also improved with the lifting of the State of Emergency 
on 4 August 2017. 

On the other hand, cooperation on return from the EU remains unsatisfactory, and the return 
rate  is  one  of  the  lowest  in  the  region.  Operational  progress  on  the  limited  number  of 
identified pilot cases continues to be very slow, and political commitment at the highest level 
has  yet  to  translate  into  operational  cooperation.  Based  on  lessons  learned  from  these  pilot 
cases,  the  EU  proposed  a  more  structured  procedure  for  the  return  of  Ethiopians  from  EU 
Member States. Discussions on this basis will be pursued with a view to a positive outcome.  

2.2. Progress with other countries 

Asia 

Bangladesh  is  the  top  non-African  country  of  origin  of  irregular  migrants  arriving  via  the 
Central  Mediterranean  route,  and  overall  second  only  to  Nigeria  in  2017  8  747  irregular 
arrivals in Italy in 2017 until 4 September, compared to 8 131 throughout 2016). It is also one 
of  the  countries  with  which  progress  on  return  and  readmission  has  been  most  difficult.  In 
fact,  the  rate  of  return  has  dropped  by  14  percentage  points  between  2013  and  2016  with 
Member States consistently reporting a lack of responsiveness of the Bangladeshi authorities 
to  the  requests  for  identification  of  irregular  migrants.  To  address  this  shortcoming  the  EU 
and  Bangladesh  provisionally  agreed  on  standard  operating  procedures  at  a  meeting  held  at 
the end of August in Dhaka. 

A  new  EUR  12  million  regional  project  on  “Improving  Migration  Management  in  the  Silk 
Routes  Countries”  started  on  1  August  2017.  The  project  aims  at  maximising  the 
development  potential  of  migration  and  mobility  in  the  region  and  towards  major  labour 
receiving countries, as well as at establishing comprehensive regional responses to migration 
and mobility with full respect of human rights and protection of migrants. 

Cooperation  with  Pakistan  on  a  Joint  Return  Operation  on  20  July,  coordinated  by  the 
European  Border  and  Coast  Guard  Agency,  was  very  good.  The  operation  returned  45 
Pakistani citizens. The next Joint Readmission Committee, currently planned for September, 
will  be  an  important  opportunity  for  Pakistan  to  present  further  progress  on  readmission, 
including  implementation  of  commitments  of  the  previous  Joint  Readmission  Committee  in 
February.  A  study  visit  of  Pakistani  officials  took  place  in  July  in  Tbilisi,  to  observe  the 
functioning  of  the  EU-Georgia  electronic  platform  for  processing  readmission  applications, 
with a view to making progress on the similar project funded by the Commission in Pakistan.  

On  Afghanistan,  a  workshop  organised  in  Brussels  on  13  July  for  the  Afghan  consular 
officials in EU Member States benefitted from a very good attendance and resulted in a useful 

14   Research and Evidence Facility. ‘Migration between the Horn of Africa and Yemen: A Study of Puntland, 
Djibouti  and Yemen,’  London  and  Nairobi:  EU  Trust  Fund  for  Africa  (Horn  of  Africa  Window)  Research 
and Evidence Facility. www.soas.ac.uk/hornresearch-ref 

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exchange  of  views  on  the  implementation  of  the  Joint  Way  Forward  and  bilateral  Member 
States'  arrangements.  The  third  Working  Group  for  the  implementation  of  the  Joint  Way 
Forward  is  scheduled  to  take  place  at  the  beginning  of  October  2017.  Addressing  the  root 
causes  of  irregular  migration  and  forced  displacement  as  well  as  ensuring  successful 
reintegration  of  returned  persons  remain  high  on  the  EU's  agenda.  This  is  done  including 
through  the  implementation  of  the  2016  EU  regional  programme,  where  Afghanistan  is  the 
main beneficiary and a similar programme which is in the pipeline for the end of 2017. The 
security situation in Afghanistan has considerably worsened after the 31 May attack in Kabul. 

West Africa 

In 2017, 8 904 irregular arrivals from Guinea arrived in Italy until 4 September. In discussions 
on  migration  management,  Guinea  has  shown  a  willingness  to  cooperate.  Good  practices 
have  been  already  discussed  and  confirmed  by  Guinea  and  the  EU.  The  next  step  is  the 
concrete implementation of cooperation in line with these best practices. A technical mission 
took place in early July to Guinea to identify economic and employment areas to be supported 
in the framework of development cooperation. An action under the EU Trust Fund for Africa 
is  being  prepared,  focusing  on  the  socio-economic  integration  of  youth  to  prevent  irregular 
migration and further contributing to the reintegration of returning migrants. More than 1 185 
Guineans have been assisted to return voluntarily so far this year from Libya and Niger. 

In  2017,  until  4  September,  8 280  irregular  migrants  from  Côte  d'Ivoire  arrived  in  Italy. 
Despite  several  reminders  from  the  EU  Delegation  in  Abidjan  to  the  Ivorian  authorities,  no 
comments  have  yet  been  received  from  Côte  d’Ivoire  on  a  proposed  practical  arrangement 
with  the  EU.  Parallel  attempts  for  improved  cooperation  through  an  ad  hoc  identification 
mission  to  some  Member  States  foreseen  for  July/August  also  failed,  as  the  mission 
eventually did not take place. Concrete progress is essential, as Côte d'Ivoire has one of the 
lowest  return  rates  of  around  5%  and  an  increasing  number  of  irregular  arrivals  to  the  EU. 
More than 490 Ivorians have been assisted so far in 2017 to return voluntarily to their country 
from Libya ad Niger.  

An agreement between Italy, Guinea and Côte d’Ivoire for the deployment of liaison officers 
should also be concluded shortly. 

An  EU  high-level  mission  to  The  Gambia,  with  the  participation  of  some  Member  States, 
took  place  in  early  August,  focusing  on  technical  and  financial  needs  for  migration 
management, and led to a commitment of over EUR 20 million. The political willingness to 
cooperate with the EU on migration management was confirmed at the highest level, and will 
be followed up by discussions of practical arrangements. A national migration policy will be 
developed in cooperation with the International Organisation for Migration, with the expected 
finalisation by the end of 2017. In 2017, until 4 September, 5 548 irregular migrants from The 
Gambia arrived in Italy. More than 1 345 Gambians have been assisted to return voluntarily 
so far this year from Niger and Libya, and the EU has confirmed its readiness to respond to 
the Gambian authorities' request for support to the sustainable reintegration of returnees. Two 
Gambian  liaison  officers  are  deployed  to  Italy  to  facilitate  the  identification  of  irregular 
migrants, with the costs of the deployment covered by the European Border and Coast Guard 
Agency. 

Following  the  technical  high-level  visit  to  Ghana  in  May  good  practices  to  better  manage 
migration have been shared with the Ghanaian authorities. Preparatory work for a short-term 

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identification mission to a number of Member States has also started. In addition, more than 
250 persons have been supported to return from Niger and Libya so far. 

North Africa and Middle East 

The EU-Egypt partnership priorities for 2017-2020, which were adopted at the July EU-Egypt 
Association  Council,  acknowledge  the  importance  of  managing  migratory  flows  for  the 
mutual benefit of both parties, in the context of the Valletta Summit and Action Plan. The EU 
agrees to  support Egypt on  migration  governance and the prevention of irregular migration, 
trafficking  in  human  beings  and  smuggling  of  migrants,  as  well  as  in  the  field  of  migrants’ 
rights and protection.15 The EU and Egypt have agreed to explore cooperation on voluntary 
return of migrants and addressing the root causes of irregular migration. The process to launch 
a formal migration dialogue is in its final stage. 

Egypt has taken measures to control its borders and prevent departures from its territory (only 
three  arrivals  from  Egypt  have  been  detected  since  the  beginning  of  2017),  but  a  more 
structured  engagement  could  help  address  more  comprehensively  the  dynamics  around  the 
Egyptian  route  and,  most  importantly,  the  management  of  stranded  migrants  in  the  region. 
Despite  reinforced  control  at  entry  points,  the  influx  of  migrants  and  asylum  seekers  into 
Egypt  continues,  though  at  a  slower  pace.  Egypt  hosts  a  growing  caseload  of  over  208 000 
registered refugees, among which 120 000 Syrians and 86 000 of African or Iraqi origin who 
live with an uncounted and growing number of other migrants. 

A  general  commitment  to  cooperate  with  the  EU  on  migration  was  confirmed  at  the  EU-
Tunisia Association Council in May 2017, but no further progress in negotiations on the visa 
facilitation or readmission agreements has been made in recent months. In the margins of the 
second meeting of the Contact Group on 24 July, the Tunisian Minister of the Interior agreed 
to hold a new round of negotiations. The dates for this new round of negotiations are being 
identified. On the same  occasion, the President  of Tunisia expressed his  willingness to help 
address the challenge posed by the situation in Libya. 

The first contract of the Tunisian programme approved in December 2016 by the Operational 
Committee of the EU Trust Fund for Africa has been signed. Tunisia has expressed interest in 
having  organised  information  sessions  on  the  Seahorse  programme.  Commissioner  Hahn 
visited  Tunisia  from  4-5  September  to  discuss  economic  development  and  cooperation  in 
Tunisia and Libya. 

A  formal  dialogue  on  migration  has  unfortunately  not  yet taken  place  with  Algeria,  but  the 
terms of reference for such a dialogue were endorsed in June 2017. During his visit to Algiers 
on 19-20 July 2017, Commissioner Hahn described the EU and Algeria as partners in dealing 
with  irregular  migration.  The  country,  which  may  become  not  only  a  country  of  transit  but 
also of origin, has taken measures such as the deployment of additional 3 000 soldiers at its 
borders with Niger and Mali. In the margins of the second meeting of the Contact Group on 
24  July,  the  Algerian  Minister  of  Interior  expressed  interest  in  developing  dialogue  and 
concrete cooperation with  the EU on  migration, security and counterterrorism. As  regards a 
concrete  programme,  however,  the  Ministry  of  Foreign  Affairs  has  not  yet  expressed  an 

15   A  EUR  60  million  programme  was  presented  under  the  North  Africa  Window  of  the  EU  Trust  Fund  for 
Africa  in  May  2017,  to  enhance  Egypt's  migration  management,  address  the  root  causes  of  irregular 
migration, and support Egyptian communities hosting migrants. 

9 

 
 
 
 
 
 
 
 
 
                                                            
interest in funding from the EU Trust Fund for Africa at this stage. Both parties indicated their 
openness to continue discussions to recalibrate potential projects. 

Irregular migration flows from Morocco to the EU, mainly to Spain, have increased over the 
summer. In addition 4 786 migrants from Morocco arrived in Italy in 2017, until 4 September. 
In  the  framework  of  the  EU  Trust  Fund  for  Africa,  Morocco  participates  in  the  first  cross-
window programme of the North of Africa and Sahel-Lake Chad windows. The programme 
aims  at  strengthening  south-south  cooperation  on  migration  through  support  for  the 
implementation of memoranda of understanding between Morocco and Senegal, Côte d'Ivoire 
and Mali. There has been no progress in negotiations with Morocco on visa facilitation and 
readmission agreements. In this context the EU stands ready to further support Morocco and 
Algeria  in  the  difficult  task  of  managing  migratory  flows  and  is  ready  to  discuss  further 
measures of cooperation in the coming months. 

Work is also ongoing to ensure follow-up to the EU-hosted Brussels Conference on the Future 
of Syria and the Region, held in April 2017, where the EU reconfirmed its support to Jordan 
and  Lebanon  for  humanitarian  protection,  sustainable  economic  growth,  and  the  education 
and livelihood needs of refugees and their host communities. Jordan and Lebanon host a high 
number of refugees on their territory (namely Syrians) but up to now they are not countries of 
origin for irregular migration towards the EU. Migration and mobility feature as partnership 
priorities  in  both  cases.  These  points  were  reconfirmed  on  the  occasion  of  the  Association 
Councils with Jordan and Lebanon in July.  

3. 

Central Mediterranean Route 

Arrivals  via  the  Central  Mediterranean  route  up  to  4  September  2017  amount  to  99  846 
people,  a  decrease  in  comparison  to  the  same  period  in  2016.  By  the  end  of  August,  the 
International  Organisation  for  Migration  had  recorded  2  410  lives  lost  at  sea  this  year.  In 
terms of arrivals, there has been a clear downward trend in July and August. This reflects a 
number of elements, including a stronger border control capabilities by the Libyan authorities, 
a  growing  activity  of  the  Libyan  Coast  Guard,  the  initial  implementation  of  EU-funded 
actions  in  cooperation  with  the  International  Organisation  for  Migration  and  the  United 
Nations High Commissioner for Refugees and changes in the approach taken by smugglers.16 

Work  has  been  further  stepped  up  since  the  adoption  of  the  Joint  Communication  on  the 
Central Mediterranean Route17 of January and the Malta Declaration of February 201718. The 
Commission adopted in early July an Action Plan to support Italy, reduce pressure along the 
route  and  increase  solidarity.19  It  builds  on  the  existing  approach  for  the  management  of 
migration  flows,  with  a  special  emphasis  on  Search  and  Rescue,  work  with  Libya’s 
neighbours, and return. In addition, it contains measures to increase solidarity within the EU 
and  assist  Italy  with  the  implementation  of  its  recent  migration  reform,  for  which  the 

16   EU  funded  research  (Research  and  Evidence  Facility:  www.soas.ac.uk/hornresearch-ref)  shows  that  a 
growing  number  of  mainly  Somali  migrants  are  choosing  to  migrate  to  Europe  via  Yemen.  This  route  is 
relatively  new  (first  cited  in  2015),  and  appears  to  be  growing  in  popularity.  There  are  reports  that  small 
numbers of Ethiopians are also embarking on this route. A key factor for the emergence of this new route 
appears to be the enhanced border controls exerted by Ethiopia and Sudan along more traditional trafficking 
and smuggling routes. 

17   Joint Communication to the European Parliament, the European Council and the Council: "Migration on the 

Central Mediterranean Route – Managing flows, saving lives", JOIN (2017) 4 final of 25.1.2017. 

18   http://www.consilium.europa.eu/en/press/press-releases/2017/01/03-malta-declaration/ 
19   SEC(2017) 339 of 4.7.2017. 

10 

 
 
 
 
 
 
 
                                                            
Commission has mobilised an additional amount of EUR 35 million. The Council Presidency 
of  the  European  Union  and  Member  States  agreed  on  a  reporting  tool  to  track  progress  on 
actions identified in the Malta Declaration’s implementation plan as well as the Action Plan 
for Italy. 

The Contact Group for the Mediterranean held its second meeting in Tunis on 24 July. In the 
Tunis  Declaration20  the  countries  committed  themselves  to  continuing  and  deepening 
cooperation to address the root causes, smuggling of migrants and returns.21. At a meeting in 
Paris on 28 August the Heads of State or Government of Germany, France, Italy, Spain, Chad, 
Niger  and  Libya,  together  with  the  High  Representative/Vice  President  of  the  Commission, 
agreed on a number of measures to further enhance the work being undertaken22. 

Libya remains by far the largest embarkation point and transit country, and is therefore a key 
partner  –  together  with  the  countries  of  origin  –  for  managing  flows  on  the  Central 
Mediterranean route. Libya remains a key transit country for victims of trafficking in human 
beings,  predominantly  Nigerian  women  and  girls  trafficked  for  the  purpose  of  sexual 
exploitation in the EU. The International Organisation for Migration reports that the first six 
months  of  2017  confirm  the  concerning  2014-2016  trend  of  a  sharp  estimated  increase  by 
600%  of the potential victims of trafficking  for sexual exploitation arriving to  Italy  through 
the Central Mediterranean route. 

The  EU  is  pursuing  its  diplomatic  efforts  for  the  stabilisation  of  Libya.  These  efforts  are 
underpinned by EU financial support from the Instrument contributing to Stability and Peace, 
enabling conflict mediation between leaders in the Libya-Niger border region and in eastern 
Libya.  Rebuilding  state  presence  through  the  rehabilitation  of  key  public  infrastructure  and 
basic  services  under  the  joint  supervision  of  the  Government  of  National  Accord  and  the 
authorities  in  Benghazi,  Kikla,  Sirte,  Sebha  and  Obari  is  also  a  key  component  of  the  EU's 
stabilisation  work;  through  22  projects,  this  cooperation  has  rehabilitated  schools  and 
hospitals  and  the  management  of  water  supply,  sewage  and  waste.  The  EU  is  also  closely 
coordinating  with  the  United  Nations  as  regards  security  assessment  and  possible  increased 
presence on the ground. 

The EU has further deepened its work to support the Libyan authorities regarding migration 
management, with a particular focus on Libya's southern borders. In July 2017, a EUR 46.3 
million project23, co-funded by the EU and Italy, was approved under the EU Trust Fund for 
Africa, to reinforce the integrated border and migration management capacities of the Libyan 
authorities.  The  project  includes  activities  to  strengthen  the  operational  capacities  of  the 
Libyan  Coast  Guards  and  their  control  operations,  to  conduct  technical  assessments  for  a 
fully-fledged  National  Coordination  Centre  and  a  Maritime  Rescue  Coordination  Centre  in 
Tripoli,  and  to  strengthen  the  operational  capacity  of  the  Libyan  border  guards  along  the 
southern  borders.  In  connection  to  this,  the  European  External  Action  Service  and  the 
Commission services are preparing, together with Italy, for a possible fact-finding mission to 
southern Libya. 

20   http://europa.eu/rapid/press-release_STATEMENT-17-2125_fr.htm 
21   In the margins of the Contact Group, Commissioner Avramopoulos held bilateral meetings with the President 
and Minister of Interior of Tunisia, the Ministers of Interior of Niger, Algeria and Libya, and the Minister of 
Malians Abroad of Mali. 

22   http://www.elysee.fr/declarations/article/declaration-conjointe-relever-le-defi-de-la-migration-et-de-l-asile/ 
23   http://europa.eu/rapid/press-release_IP-17-2187_en.htm 

11 

 
 
 
 
 
 
 
                                                            
This work inside Libya adds to the ongoing work on the protection of migrants and refugees, 
social  cohesion  as  well  as  social  and  economic  development  of  host  communities, 
implemented  through  a  EUR  90  million  programme  adopted  in  April  2017.  Following  the 
signature of the contracts, international organisations24 benefiting from this programme have 
already  started  implementation  on  the  ground.  The  United  Nations  High  Commissioner  for 
Refugees  has  already  started  to  distribute  non-food  items  and  conducted  protection 
monitoring  in  detention  centres  located  in  Benghazi.  The  International  Organisation  for 
Migration has conducted several assessments to identify needs in terms of material support for 
detention  centres,  reception  services  during  rescue  at  sea  operations,  humanitarian  needs  of 
migrants and internally displaced persons, as well as the health conditions and medical needs 
of  migrants  in  detention.  Meanwhile,  both  the  United  Nations  High  Commissioner  for 
Refugees  and  International  Organisation  for  Migration  continue  to  expand  protection  and 
assistance services at disembarkation points (e.g. documentation, primary health care and cash 
based interventions). 

This work has resulted in a significant increase in the number of persons who opt to  return 
from  Libya  to  their  countries  of  origin.  Until  1  September  2017,  the  International 
Organisation for Migration has assisted 7 084 migrants to return voluntarily, against 2 775 for 
the whole of 2016. The Commission is continuing to explore ways to underpin this trend. 12 
EU  Delegations  in  Sub-Saharan  African  countries  sent  a  letter  to  the  relevant  authorities, 
raising the issue of humanitarian returns for migrants stranded in Libya to their countries of 
origin.  The  International  Organisation  for  Migration  has  been  following  up  with  the  EU 
Delegations  and  national  authorities  to  explore  necessary  support  measures  such  as  the 
creation of an online consular service piloted by the International Organisation for Migration 
to reach migrants outside of Tripoli.25  

The SEAHORSE Mediterranean Project, which aims at enhancing the situational awareness 
and  reaction  capacity  of  North  African  countries  on  the  irregular  migration  flows  and  illicit 
trafficking in particular those taking place in their coastal regions and territorial waters, was 
pursued. The scheduled training of Libyan Coast Guard is ongoing: two Libyan officers have 
participated in the Indalo Joint Operation. A Libyan Coast Guard officer was seconded to the 
Italian National Coordination Centre in July. The necessary arrangements are being finalised 
to support the trainings of Libyan Coast Guard after the summer both in Malta and in Italy. 

EUNAVFOR Med Operation Sophia continued its anti-smuggling operations as well as the 
complementary training and capacity building of the Libyan Coast Guard. At the end of July, 
names of new candidate trainees were provided by the Libyan authorities. A total of 92 names 
were  put  forward  who  are  expected  to  start  the  training  in  Italy  in  mid-September  2017, 
pending ongoing vetting procedures. On 25 July 2017, the Council extended the mandate of 
EUNAVFOR  Med  Operation  Sophia  until  31  December  2018  and  amended  it  to  include  a 
monitoring mechanism  of trainees26  and  to  enhance the possibilities for  sharing  information 

24   The  implementing  partners  of  this  programme  are  the  International  Organisation  for  Migration,  United 
Nations High Commissioner for Refugees, United Nations Children's Fund, the United Nations Development 
Internationale 
Programme  and 
Zusammenarbeit). 

the  German  Development  Agency 

(Deutsche  Gesellschaft 

für 

25   To date, discussions have taken place with the authorities and EU Delegations in The Gambia, Mali, Guinea 
Conakry,  Côte  d'Ivoire  and  Senegal.  Concrete  measures  for  further  support  are  being  identified  with  the 
Gambia  (for  Assisted  Voluntary  Returns  from  Niger  and  Libya),  Guinea  Conakry,  Senegal  and  Mali 
(Assisted Voluntary Returns from Niger), and Burkina Faso (Assisted Voluntary Returns from Libya). 

26   On 21 August, the Operation's Commander signed a monitoring annex to the Memorandum of Understanding 

on training with the Head of the Libyan Coast Guard. 

12 

 
 
 
 
 
                                                            
with  Member  States'  law  enforcement  agencies,  the  European  Border  and  Coast  Guard 
Agency and Europol. In addition, Italy is also conducting training activities for future staff of 
the Libyan Coast Guard and has deployed a vessel in Tripoli, to support the operationalisation 
(technical maintenance, repair, etc.) of the four vessels already returned to Libya earlier this 
year. 

In  July,  the  Council  also  took  an  important  step  in  the  fight  against  smuggling,  allowing 
Member  States  to  prevent  the  export  or  supply  to  Libya  of  inflatable  boats  and  outboard 
motors  when  reasonable  grounds  exist  to  believe  that  they  are  intended  for  smuggling  of 
migrants.27 

On  17  July,  the  Council  extended  the  mandate  of  EUBAM  Libya  until  31  December  2018. 
EUBAM  Libya  is  working  towards  establishing  a  light  presence  on  the  ground  in 
October/November,  possibly  in  conjunction  with  the  EU  Delegation.28  During  the  summer 
EUBAM Libya worked with the authorities on border management reform for Libya and with 
the  United  Nations  Support  Mission  in  Libya  and  the  United  Nations  Development 
Programme on supporting the civilian aspects of the Tripoli Security Plan29, started to draft an 
operational concept for the General Administration for Coastal Security, and helped establish 
a National Counter-Terrorism coordination capacity. The deployment of one associated expert 
from  the  European  Border  and  Coast  Guard  Agency  and  another  one  from  Europol  to 
EUBAM  Libya  has  increased  information  sharing,  helped  develop  synergies  and  improved 
coordination of efforts. 

On 22 June, the Commission and the Italian Coast Guard signed a grant agreement under the 
emergency assistance strand of the Internal Security Fund for a budget of EUR 1.84 million. 
Through  this  grant,  the Italian  Coast  Guard  will  provide technical assistance  for  the  Libyan 
Coast Guard to make an assessment of Libya's capacities in carrying out Search and Rescue 
and conduct a feasibility study, paving the way to the definition of Libya's Search and Rescue 
area and to the establishment of a Libyan Maritime Rescue Coordination Centre. 

Italy  has  drafted  a  Code  of  Conduct  for  non-governmental  organisations  performing  Search 
and  Rescue  in  the  Central  Mediterranean.  The  Code  of  Conduct  provides  an  important 
framework for improving coordination and effectiveness of rescue operations, as recognised 
by the Home Ministers at the Justice and Home Affairs Council of 6-7 July 2017. It would be 
important that non-governmental organisations operating in the Central Mediterranean sign up 
to and comply with the provisions of the Code of Conduct.  

It  is  important  to  continue  efforts  to  improve  stability  throughout  Libya,  to  step  up 
cooperation  with  and  among  Libya’s  neighbours,  and  to  plan  for  continued  training, 
protection and assistance, socio-economic development as well as Assisted Voluntary Return 
at  the  same  level  in  2018  and  beyond.  This  will  require  the  funding  through  the  EU  Trust 
Fund for Africa to increase, notably, but not exclusively, for the North Africa window. The 
Commission has, upon request of the Council Presidency of the European Union and Member 

27   Council Decision 2017/1338. 
28   EUBAM  Libya  currently  travels  to  Tripoli  on  an  average  of  one  to  three  times  per  week.  Security  and 

logistical staff will be able to stay overnight in Tripoli even prior to October/November. 

29   The EU Liaison and Planning Cell has also continued playing a major supporting role to the United Nations 
Support Mission in Libya in coordinating the Tripoli Security Plan. The Joint Tripoli Security Plan and, in 
particular  the  Joint  Operations  Centre,  unifies  the  efforts  of  the  Libyan  Temporary  Security  Committee, 
Ministry of Defence, of Interior, the Presidential Guard and other Security Actors in order to return Tripoli to 
a normal pattern of life. 

13 

 
 
 
 
 
 
 
                                                            
States,  made  an  assessment  of  possible  priorities  and  funding  gaps,  which  will  be  further 
discussed with Member States in the coming months.  

The External Investment Plan and its European Fund for Sustainable Development will help 
address  the  economic  root  causes  of  irregular  migration  by  boosting  investment  and  job 
creation, notably in Africa and the EU's neighbourhood. Following the compromise endorsed 
by  COREPER  in  June  and  by  the  European  Parliament  in  July,  the  final  version  of  the 
Regulation  for  the  European  Fund  for  Sustainable  Development  should  be  approved  by  the 
co-legislators as soon as possible, in view of starting implementation without delay.  

4.  

Conclusion 

Managing  migration  along  the  Central  Mediterranean  route  has  remained  a  priority  area  of 
work within the Partnership Framework. In July and August, the number of arrivals to Italy 
compared to the summer last year has reduced. A number of measures put in place by Italy 
and the EU in Libya, in close collaboration with the Libyan authorities and key international 
partners (the International Organisation for Migration, United Nations High Commissioner for 
Refugees), and more broadly within the Partnership Framework, are beginning to bear fruits. 
Some important steps forward were also made with some partner countries, like Guinea and 
Bangladesh.   

Reduced migratory pressure along the Central Mediterranean route provides an opportunity to 
make further progress on a range of actions set in motion since the launch of the Partnership 
Framework approach.   

Enhancing  domestic  border  control  as  well  as  anti-smuggling  and  migration  management 
capabilities in countries of origin and transit contributes to dismantling smugglers networks, 
reducing outflows and enhancing security and stability. A stronger focus should be placed on 
border control in Southern Libya and in its neighbouring countries. Strengthening the work of 
Joint Investigation Teams, such as the one operating in Niger, and of Common Security and 
Defence missions operating in migration-sensitive areas, can bring further results. Efforts at 
regionalising  CSDP  missions  and  supporting  the  creation  of  a  G5  joint  force  should  also 
continue with the full support of Member States. 

As  success  in  dismantling  smugglers  networks  often  deprives  local  communities  along  the 
routes  of  a  source  of  revenue,  ensuring  local  ownership  for  migration  policies  requires  the 
timely implementation of projects to create jobs and alternative sources of revenues. To that 
effect it is key that existing projects to foster socio-economic resilience in Southern Libya and 
Niger, already approved under the EU Trust Fund for Africa, are swiftly implemented.  

While efforts at closing existing routes are beginning to show results, the EU should continue 
to  be  vigilant  on  the  possible  creation  of  new  alternative  routes  to  Europe,  engaging  with 
relevant partner countries and with the most concerned Member States. 

Efforts  to  stem  irregular  migration  should  continue  to  be  paralleled  by  strong  policies  to 
protect  human  rights  and  ensure  dignified  living  conditions  for  migrants  in  countries  of 
transit, in particular Libya. The successful implementation of the programme between the EU 
and  the  International  Organisation  for  Migration  of  Assisted  Voluntary  Returns  in  West 
Africa and Libya points to the significant potential of this policy tool.   

14 

 
 
 
 
 
 
 
 
 
 
 
Work with the United Nations High Commissioner for Refugees  on resettlement of those in 
need  of  international  protection  can  play  an  increasingly  important  role.  Member  States 
should  swiftly  make  ambitious  pledges  in  the  context  of  the  wider  resettlement  exercise 
launched by the Commission.  

Effective return and readmission remains key to provide disincentives to irregular migration 
and protect the integrity of asylum systems. Recent progress in pragmatic cooperation in the 
field of returns with some countries in Western Africa and Asia should offer a benchmark for 
similar progress with other partner countries. The EU will continue to stand ready to mobilise 
all relevant leverages and tools, including visa policy, to build constructive cooperation in this 
area. 

Finally, the scale of funding that can be mobilised in support of EU policy objectives remains 
a  key  factor  for  success.  It  will  be essential that  additional  resources  are  made  available  by 
Member  States  for  projects  under  the  EU  Trust  Fund  for  Africa,  and  in  particular  its  North 
Africa Window for 2018 and beyond.  

The  upcoming  EU-Africa  Summit  will  constitute  an  opportunity  to  take  stock  of  progress 
made within the context of the Partnership Framework with African countries and to add new 
dynamics  to  the ongoing effort to  build together  a well-functioning and  mutually benefiting 
mobility and migration partnership.  

15