JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Eastern Partnership policy beyond 2020 Reinforcing Resilience - an Eastern Partnership that delivers for all
Date: 2020-03-18
Institutions: European Commission, European External Action Service
Subjects: Eastern Partnership, civil society, climate change policy, cooperation policy, digitisation, environmental policy, international security, rule of law, sustainable development

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 18.3.2020  JOIN(2020) 7 final  JOINT COMMUNICATION TO THE EUROPEAN  PARLIAMENT, THE EUROPEAN COUNCIL, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Eastern Partnership policy beyond 2020          Reinforcing Resilience - an Eastern Partnership that delivers for all {SWD(2020) 56 final}  
 
 
1. 

INTRODUCTION 

The Eastern Partnership (EaP) is a joint initiative of the European Union, its Member States 
and  Armenia,  Azerbaijan,  Belarus,  Georgia,  the  Republic  of  Moldova1,  and  Ukraine  (‘the 
partner countries’). Launched in 2009, the EaP is a strategic and ambitious partnership based 
on common values and rules, mutual interests and commitments as well as shared ownership 
and  responsibility.  It  aims  to  strengthen  and  deepen  the  political  and  economic  relations 
between the EU, its Member States and the partner countries and helps them in achieving the 
twin  ecological  and  digital  transformation.  It  supports  the  delivery  of  many  global  policy 
objectives, including the Paris Agreement on Climate Change and the UN 2030 Agenda and 
its  Sustainable  Development  Goals.  It  contributes  to  the  overall  goal  of  increasing  the 
stability, prosperity, and resilience of the EU’s neighbours as set out in the  Global Strategy 
for  the  foreign  and  security  policy  of  the  European  Union2  and  the  2015  European 
neighbourhood policy review. It is fully aligned with the European Commission’s  Political 
Guidelines  2019-20243.  Finally,  it  reflects  all  relevant  flagship  strategies  adopted  by  the 
Commission4. 

Over the years, the EaP has been instrumental in bringing the EU and the partner countries 
closer together. The EaP Summit of November 2017 in Brussels marked a new approach with 
the adoption of the common reform agenda titled ‘20 Deliverables for 2020’. This ambitious 
work  plan  focused  on  delivering  tangible  results  on  the  ground  and  improving  the  lives  of 
people in four main policy areas: (1) stronger economy; (2) stronger governance; (3) stronger 
connectivity;  and  (4)  stronger  society,  together  with  targets  for  the  cross-cutting  issues  of 
gender, civil society, media and strategic communication. 

The EaP will continue to aim to build an area of democracy, prosperity, stability and increased 
cooperation based on common values. The EU has a strategic interest in advancing its global 
leadership on human rights and democracy in external action, including in relation to the EaP. 
Respect  for  human  rights  is  an  essential  element  of  resilient,  inclusive  and  democratic 
societies.  Focus  will  therefore  continue  to  be  on  outstanding  issues  from  the  current 
objectives, notably the rule of law, protection of human rights, the fight against corruption and 
discrimination,  the  role  of  an  independent  media  and  civil  society  and  promotion  of  gender 
equality.  The  EU’s  incentive-based  approach  (‘more  for  more’  and  ‘less  for  less’)  will 
continue  to  benefit  those  partner  countries  most  engaged  in  reforms.  The  future  policy 
approach  for  the  EaP  should  be  built  upon  the  already  agreed  tasks,  aims,  objectives, 
principles and areas of cooperation. 

Continued  engagement  with  the  EaP  countries  will  remain  among  the  key  priorities  for  the 
EU. The renewed dynamics of the EaP policy will enhance this engagement by emphasising 
the  significance  of  this  mutually  beneficial  cooperation.  It  will  translate  into  further 
development  of  political  relations  with  all  Eastern  partners  in  both  bilateral  and  multilateral 
formats. Furthermore, due to its geographical location between the European Union, Asia and 
the  wider  neighbourhood,  the  EaP  region  brings  increased  value  for  EU  foreign  policy 
engagement,  notably  due  to  the  varying  degrees  of  economic,  societal  and  strategic 
connections  with  its  neighbours.  The  presence  and  interests  of  other  regional  and  global 
powers  as  well  as  the  cultural and  geographical  links  with  Central  Asia  represent  additional 

1 Hereinafter ‘Moldova’ 
2 https://eeas.europa.eu/sites/eeas/files/eugs_review_web_0.pdf 
3 https://ec.europa.eu/commission/sites/beta-political/files/political-guidelines-next-commission_en.pdf 
4  These  include  the  Communications  ‘The  European  Green  Deal’  (COM(2019)  640),  ‘Shaping  Europe's 
digital  future’  (COM(2020)  67),  ‘A  New  Industrial  Strategy  for  Europe’  (COM(2020)  102)  and  ‘A 
Union of Equality: Gender Equality Strategy 2020-2025 (COM(2020) 152). 

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opportunities to develop mutually beneficial links with the broader neighbourhood. The EU’s 
activities in the region are complemented by other policies and initiatives such as the Northern 
Dimension and the Black Sea synergy. 

In May 2019, the European Commission launched a consultation on the future of the EaP. The 
European Council endorsed this approach in June 2019. 

The consultation ran until the end of October 2019. It was broad and inclusive, gathering over 
200 written contributions including through the EaP structured consultation webpage. Nearly 
all  EU  Member  States  and  all  partner  countries  submitted  opinions,  as  did  the  European 
Parliament,  the  European  Economic  and  Social  Committee,  and  the  Committee  of  the 
Regions. Other contributors included the European Investment Bank, the European Bank for 
Reconstruction  and  Development,  and  other  international  financial  institutions,  and  a  wide 
variety  of  stakeholders  such  as  civil  society  organisations  (including  the  Eastern  Partnership 
Civil  Society  Forum),  think  tanks,  academic  institutions,  and  business  organisations. 
Recommendations  from  the  Eastern  Partnership  Youth  Forum  and  the  Young  European 
Ambassadors were taken into account. 

This  joint  communication  also  draws  on  feedback  received  during  consultations  in  each  of 
the six partner countries and many EU Member States. Discussions within the platforms and 
panels of the current EaP architecture and related meetings were also considered.  

Overall,  there  is  a  broad  consensus  that  the  current  EaP  policy  framework  is  robust  and 
delivers  tangible  results  for  people.  The  joint  communication  outlines  how  to  address 
common challenges and how the EU will work together with the partner countries in different 
policy areas in the future. Based on the results of the consultation, this document outlines the 
new long-term policy objectives for the Eastern Partnership beyond 2020 and sets out the 
measures  that  aim  to  strengthen  resilience,  foster  sustainable  development  and  deliver 
tangible results for society. 

2.  KEY ACHIEVEMENTS OF THE EASTERN PARTNERSHIP  

In 2015, EU Member States and the partner countries welcomed the revision of the European 
neighbourhood  policy  in  the  context  of  the  EU  Global  Strategy.  They  called  for  increased 
differentiation, greater  ownership, enhanced focus and greater flexibility. The consultation 
showed that the EaP has broadly delivered on these objectives. 

In terms of differentiation, the partnership has developed according to the interests, ambitions 
and  progress  of  each  partner.  There  are  new,  far-reaching  political  and  economic  bilateral 
agreements  between  the  EU  and  individual  partner  countries.  Relations  with  Georgia, 
Moldova and Ukraine are guided by association agreements and deep and comprehensive free 
trade  areas  (DCFTAs).  To  ensure  these  ambitious  agreements  are  fully  implemented,  these 
three  countries  agreed  to  set  the  ‘association  agendas’  around  short-  and  medium-term 
cooperation  priorities.  Visa-free  arrangements  have  been  put  in  place  between  the  EU  and 
these countries, to facilitate people’s movement across borders. All three countries have fully 
implemented readmission agreements. 

A comprehensive and enhanced partnership agreement frames EU relations with Armenia, and 
negotiations on a new agreement are under way with Azerbaijan. Cooperation with these two 
countries  is  based  on  agreed  partnership  priorities.  Sectoral  dialogues  foster  relations  with 
Belarus  while  negotiations  on  partnership  priorities  are  under  way.  Visa  facilitation  and 
readmission  agreements  concluded  with  Armenia,  Azerbaijan  and  Belarus  have  been  key  in 
facilitating travel for people in these countries. 

To  encourage  greater  ownership  by  partner  countries,  the  EU  has  transformed  the  way  it 
engages  with  them.  To  increase  impact,  EU  support  has  shifted  away  from  project-based 

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financial assistance towards support for genuinely transformational reform policies. This new 
approach has delivered tangible benefits to people, for example supporting decentralisation in 
Ukraine and high-level energy efficiency initiatives in Armenia, Georgia and Ukraine. 

The EU has strengthened collaboration with those responsible for reforms in partner countries. 
Together  with  national  authorities,  the  EU  and  its  Member  States  have  taken  key  steps  to 
ensure  joint  programming  where  possible.  This  guarantees  a  more  effective  collective 
response to partner countries’ needs, making cooperation less fragmented and therefore more 
coherent and impactful. Successful joint responses include Ukraine and Moldova. 

The  EU  has  stepped  up  its  strategic  collaboration  with  international  financial  institutions 
(IFIs). Through country, regional and sectoral dialogues, the EU and IFIs have brought about 
substantial  support  for  small  and  medium  sized  enterprises  (SMEs)  and  ‘green’  investments 
for  energy  efficiency  and  municipal  infrastructure,  thereby  decreasing  energy  consumption, 
pollution  and  greenhouse  gas  emissions,  and  strengthening  environmental  and  climate 
resilience across the region. 

Engaging with civil society has been critical in ensuring effective reforms, as it has increased 
public  accountability,  advanced  human  rights  and  local  development,  and  ensured  service 
delivery to the whole population, including vulnerable groups. The EU has played a key role 
in supporting the contribution of civil society, which has in turn driven social innovation and 
helped build reform coalitions at national, regional and local level. 

Responses  to  the  consultation  emphasise  the  value  of  building  a  greater  focus  within  a 
common policy. The ‘20 deliverables for 2020’, endorsed by EU Member States and partner 
countries  at  the  November  2017  EaP  Summit,  set  out  a  common  results-oriented  agenda  in 
order to focus cooperation. 

The new European neighbourhood policy underlined the need for greater flexibility to enable 
the  EU  and  the  partner  countries  to  respond  to  ever-changing  needs  and  circumstances.  To 
increase  support  and impact, the EU  has:  (i)  strengthened  cooperation  with  IFIs  through  the 
external  investment  plan  and  structural  reform  facility;  (ii)  modernised  and  strategically 
aligned  its  technical  assistance  instruments  (TAIEX  and  Twinning)  for  tailor-made  support; 
and  (iii)  adapted  its  institutional  structures  to  respond  to  new  challenges.  For  example,  the 
‘Support Group for Ukraine’ is a unique structure that brings together expertise from across 
the European Commission and EU Member States to tackle the country’s key challenges. The 
‘EEAS  East  StratCom  taskforce’  created  following  the  European  Council  Conclusions  of 
March  2015  on  tackling  disinformation,  has  also  been  instrumental  in  making  the  EU’s 
communication and branding in the region strategic and impactful. 

3.  FUTURE POLICY APPROACH FOR THE EASTERN PARTNERSHIP  

According  to  the  consultation,  there  is  a  strong  consensus  that  ‘20  deliverables  for  2020’  is 
producing  tangible  results  for  society.  It  has  made  a  difference  in  3  out  of  4  priority  areas, 
namely  stronger  economy,  stronger  connectivity  and  stronger  society.  On  stronger 
governance, initial achievements include ‘one-stop-shops’ delivering efficient and accessible 
public services, and e-assets declarations systems in most partner countries. 

EU  Member  States,  most  partner  countries  and civil  society  stress  the  need to  significantly 
improve results in the governance area, notably rule of law, the fight against corruption 
and organised crime, and the role of an independent media and civil society. Progress in 
governance  is  directly  linked  to  sustainable  economic  development.  Legal  certainty  and 
functioning democratic institutions are key to attracting investment, supporting political 
stability  and  rule  of  law  reforms,  and  fostering  socioeconomic  integration.  The  results-
oriented agenda, supported by professionally independent, good quality  official statistics for 

3 

 
monitoring  progress  and  in  support  of  evidence-based  decision-making,  will  therefore  be 
reinforced in the future policy. 

The  incentive-based  approach  needs  clearer  guidance  on  specific  reform  priorities,  with 
objective,  precise,  detailed  and  verifiable  benchmarks.  Reform  progress  should  lead  to 
increased  funding  and  investment.  Serious  or  prolonged  stagnation  or  even  backsliding  in 
reform  implementation  should  lead  to  EU  funding  being  adjusted  downward,  with  the 
exception of support to civil society. 

The consultation demonstrated a keen desire by all the partner countries to further tailor the 
partnership to the interests, ambitions and progress of each partner country. Associated 
countries have strong expectations of participating in common initiatives on issues covered by 
the association agreements and deep and comprehensive free trade areas in order to reach their 
full potential. 

Bilateral  cooperation  remains  the  main  way  to  ensure  a  tailor-made  approach.  The 
implementation  of  bilateral  agreements  will  be  sped  up  and  complemented  with  deeper 
sectoral  cooperation  and  exchange  between  interested  partner  countries.  The  EU  will 
continue  to  provide  support  in  bilateral,  regional  and  multi-country  fora,  including  targeted 
sectoral assistance, in line with the principles of inclusiveness and differentiation. In addition, 
the EaP will continue to be flexible and inclusive, allowing countries to tackle common and 
global challenges jointly in a wide range of areas, fostering regional integration.  

Building  on  the  Partnership’s  key  achievements,  and  recognising  that  strengthening 
resilience  is  an  overriding  policy  framework,  as  outlined  in  the  Strategic  Approach  to 
Resilience in the EU’s external action5, the EU, its Member States and the partner countries 
will  work  together  on  the  following  long-term  Eastern  Partnership  policy  objectives 
beyond 2020: 

 
 
 
 
 

together for resilient, sustainable and integrated economies; 
together for accountable institutions, the rule of law and security;  
together towards environmental and climate resilience;  
together for a resilient digital transformation; and 
together for resilient, fair and inclusive societies. 

The European Commission has called for the EU and its partners, in particular from across the 
European continent, to address common challenges and to work hand in hand on new policy 
priorities in the future to support the ecological transformation, the digital transformation and 
to deliver on economies that work for all, in particular more job opportunities for youth and to 
promote gender equality. These issues will be mainstreamed into all policy objectives. 

4.  MAIN POLICY OBJECTIVES OF THE FUTURE EASTERN PARTNERSHIP 

4.1 Together for resilient, sustainable and integrated economies 

Strengthening the economy is key to meeting citizens’ expectations, reducing inequality, and 
making  partner  countries  places  where  people  want  to  build  their  futures.  Better-integrated 
economies that are inclusive, sustainable and fair, deliver for all. The aim is to create decent 
jobs and economic opportunities, ensuring prosperity for people living in the partner countries. 

5https://eeas.europa.eu/sites/eeas/files/join_2017_21_f1_communication_from_commission_to_inst_en_v7_

p1_916039.pdf 

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This  will  entail  increased  trade  and  further  regional  and  bilateral  integration  of  the 
economies  of  partner  countries  and  the  EU,  together  with  cooperation  for  progressive 
decarbonisation towards  climate  neutrality,  embracing  the  opportunities  from  the  twin 
ecological  and  digital  transformation.    Building  on  the  existing  Association  Agreements, 
and DCFTAs and other trade agreements, the EU, jointly with partner countries, will focus on 
supporting their full implementation for maximum benefits. In line with the EU new growth 
strategy, the European Green Deal and the Digital Strategy, the EU and partner countries will 
further  support  the  modernisation  of  EaP  economies,  making  them  more  competitive  and 
innovative. In addition, the  EU and the partner countries will invest in physical connectivity 
and infrastructure (in transport, energy and digital) as underpinning conditions for economic 
development.  In  cases  of  economic  crisis,  the  EU  stands  ready  to  help  partner  countries 
safeguard  macroeconomic  stability  and  incentivise  structural  reforms  through  EU  Macro-
Financial  Assistance.  Supporting  structural  reforms,  improving  access  to  finance,  and 
supporting  SMEs  will  foster  growth  and  investment.  Investing  in  people,  particularly  the 
young, and better connecting education, research and innovation with private sector needs will 
prepare the partner countries to face tomorrow’s challenges. 

4.1.1 Trade and economic integration 

During the last decade, EU-EaP trade has nearly doubled turning the partner countries into 
the  EU’s  10th  largest  trading  partner.  The  EU  is  the  first  trading  block  for  four  partner 
countries  (Azerbaijan,  Georgia,  Moldova  and  Ukraine),  while  for  Armenia  and  Belarus  the 
EU is the second biggest trading partner. These trade relations have also led to diversification 
in  exports  of  goods  from  partner  countries,  and  to  their  better  integration  in  global  value 
chains.  Furthermore,  the  number  of  companies  exporting  to  the  EU  from  Georgia  has 
increased by 46%, from Moldova by 48% and from Ukraine by 24%. This clearly reflects the 
mutual benefits of EaP.  

The EU proposes to further deepen the economic integration with and among the partner 
countries, particularly that of the three associated countries through continued support for the 
full implementation of the current DCFTAs. Bilateral agreements, in particular DCFTAs, offer 
growth opportunities for the private sector, as well as higher levels of labour protection, better 
working conditions and citizens’ access to compliant and safe products. These benefits remain 
to  be  fully  reaped  pending  the  on-going  and  future  reforms  resulting  from  DCFTAs 
commitments.  This  process  entails  bringing  legislation  in  line  with  EU  rules,  building  the 
capacity to implement the agreed reforms and facilitating trade. The EU will also encourage 
enhanced cooperation with non-DCFTA countries. Sectoral trade facilitation arrangements of 
common  interest  should  take  economic  integration  a  step  further,  by  involving  all  partner 
countries.  In  this  regard,  as  one  example,  the  EU  will  continue  to  work  with  the  partner 
countries, where possible, towards agreements on mutual recognition of Authorised Economic 
Operators. 

The  EU  will  also  seek  to  collaborate  and  build  alliances  with  the  partner  countries  on 
pertinent  wider,  global economic  issues  in  various multilateral  fora including  supporting  the 
accession to the World Trade Organisation for current non-members. 

The EU will support the green transition in the region. It will aim at rules based,  undistorted 
and  fair  trade  and  investment  in  clean  technologies,  green  goods  and  services  and  related 
strategic  raw  materials.  The  EU  will  work  with  the  partner  countries  to  ensure  resource 
security  and  to  deliver  simultaneously  on  the  Paris  Agreement  and  on  the  Sustainable 
Development Goals. 

For associated countries, phased market access liberalisation continues. In addition, selective 
and  gradual  economic  integration  of  these  countries  into  the  EU’s  internal  market  is 
envisaged in the DCFTAs. This is conditional on regulatory convergence with, and effective 

5 

 
 
 
 
implementation by these countries of, the EU  acquis in specified areas (public procurement, 
technical barriers to trade, market surveillance, sanitary and phytosanitary measures, customs 
services, and tax good governance standards).  

4.1.2 Investment and access to finance 

During  the  last  decade,  over  125,000  SMEs  directly  benefited  from  EU  funding  (mostly  in 
local currencies) creating or sustaining  more than 250,000 jobs. Better use of blending and 
guarantees has maximised the impact, leveraging 11 billion euros in investment since 2009. 

Structural  reforms  are  key  to  supporting  economic  development,  improving  economic 
governance,  attracting  foreign  direct  investment  and  increasing  economic  resilience.  Trade 
and  investment  need  favourable  conditions  for  sustainable  economic  development.  The 
business and investment environment must be simple, transparent and reliable. This requires 
efforts to ensure a level playing field, improve the labour market and reduce informal work, 
improve  economic  governance,  and  build  on  rule  of  law  reforms,  including  prevention  of 
corruption. Economic operators must be given a clear perspective of the ecological transition 
underway.  The  EU  will  continue  to  strengthen  the  partner  countries’  key  reforms,  including 
through the External Investment Plan6 and notably the Structural Reform Facility. 

SMEs  are  the  top  employers  in  most  of  the  partner  countries  and  a  key  driver  of  shared 
growth and innovation. The EU will continue to support access to finance through guarantee 
schemes,  interest  rate  subsidies  and  investment  incentives.  It  will  also  expand  this  support 
through  its  stronger  partnership  with  IFIs,  as  well  as  the  European  Fund  for  Sustainable 
Development  (EFSD+)  within  the  proposed  Neighbourhood,  Development  and  International 
Cooperation Instrument (NDICI) and the External Action Guarantee. Sustainable finance and 
microfinance will be integral to the EU’s intervention, including in the rural areas  where the 
access  to  finance  is  particularly  difficult.  To  maximise  the  effectiveness  of  support,  the  EU 
will analyse with IFIs the key areas where investment will have impact (including through the 
development of an ‘impact investment matrix’).  

Considering  the  urgent  need  to  scale  up  sustainable  investments,  the  EU  will  further 
strengthen its cooperation with the partner countries to set up a financial system that supports 
sustainable growth, notably through international fora such as the International Platform on 
Sustainable  Finance  (IPSF).  The  EU  and  partner  countries  can  share  best  practices  and 
coordinate  efforts  on  environmentally  sustainable  investment  such  as  green  taxonomies, 
environmental and climate disclosures, and standards and labels for green financial products. 

Given the growing economic and trade relations of the Eastern partner countries with the EU, 
stronger  use  of  the  euro  in  their  foreign  commercial  dealings  would  further  strengthen 
economic relations with the EU and help to ensure the economic and financial stability of 
these  countries.  It  will  further  reduce  foreign  exchange  risk  faced  by  the  partner  countries, 
including  by  ensuring  that  the  foreign  currency  mix  in  external  borrowings,  reserve 
management and international dealings are better correlated with the currencies of their main 
trading and investment partners, while supporting a stronger  international role of the euro. 
The EU will also continue to support partner countries’ efforts to meet the criteria to join the 
Single Euro Payment Area (SEPA).  

To respond to the need of start-ups, the EU together with IFIs will develop an innovative and 
smart  financing  programme  (including  equity,  venture  capital,  business  angel  and  crowd 
funding). EU assistance will further strengthen business  support organisations, support SME 
internationalisation,  and  facilitate  public-private  dialogue  while  addressing  the  need  for 

6 https://ec.europa.eu/commission/eu-external-investment-plan_en 

6 

 
                                                           
knowledge  and  skills  to  foster  innovation,  entrepreneurship  and  creativity  that  match  future 
market  needs.  The  EU  will  continue  to  support  business,  particularly  women-led  initiatives, 
and encourage more young people to become entrepreneurs. 

To  move  towards  an  inclusive  and  fair  economy  that  delivers  for  all,  the  EU  will  help 
partner countries unleash the economic potential of their  rural areas, including by supporting 
farmers  and  the  setting  up  of  modern  cooperatives  and  producers  groups.  The  EU  will 
strengthen engagement outside capital cities and create links between local urban centres and 
rural areas. This builds on the European Commission’s methodology for smart specialisation 
as applied in the EU. 

4.1.3 Strengthened interconnectivity 

Strong  interconnections  between  the  EU  and  the  EaP  as  well  as  among  the  partner 
countries  are  important  drivers  for  economic  development,  regional  integration,  trade  and 
mobility.  Sustainable,  rules-based  and  secure  connectivity  is  key  for  both  the  EU  and 
partner countries. 

On  transport,  the  EU  focus  will  be  on  the  long-term  priority  investments  outlined  in  the 
Trans-European  Transport  Network  (TEN-T)  indicative  investment  action  plan7.  This 
includes upgrading key physical infrastructure in road, rail, port, inland waterway and airport 
facilities, and logistics centres in order to further strengthening connectivity between the EU 
and  the  partner  countries  and  among  the  partner  countries  themselves.  It  will  be  supported 
through blending and guarantees under the Neighbourhood Investment Platform. The EU will 
also increase the use of EU and international transport standards including in the area of road 
safety in line with the 2018 Eastern Partnership Declaration on Road Safety8. It will also step 
up  work  on  the  common  aviation  area  agreements  and  aviation  safety.  Recognising  the 
importance of Eastern partner countries in connectivity between Europe and Asia, the EU will 
promote  and  support  the  engagement  of  the  partner  countries  in  the  implementation  of  the 
strategy on connecting Europe and Asia9. 

On energy connectivity, the EU will continue to work with the partner countries to reinforce 
cross-border  and  inter-regional  interconnections.  The  Southern  Gas  Corridor  is  nearing 
completion  and  is  expected  to  bring  the  first  gas  from  Azerbaijan  to  the  EU  in  2020. 
Evidence-based  energy  policy  and  collection,  use  and  management  of  data  will  be  further 
supported  through  the  ‘EU4Energy’  initiative  and  the  energy  policy  dialogue.  The  ongoing 
amendment  of  the  Energy  Community  treaty,  of  which  three  partner  countries  are  part,  will 
aim at making the Energy Community more efficient and fit for a sustainable energy future. 
The EU will also help the partner countries to increase energy security by diversifying from 
oil  or  gas  imports  through  investments  in  renewable  energy  and  enhanced  energy 
efficiency and by encouraging energy market integration based on sound legislation. 

Satellite-based connectivity contributes to smart and safe transport, greener cities and enables 
the  digitalisation  and  modernisation  of  the  economy.  In  this  context,  cooperation  with  the 
partner  countries  with  regard  to  extending  the  coverage  of  the  European  Geostationary 
Navigation  Overlay  Service  will  contribute  to  safer  aviation,  in  line  with  EU  legislation,  to 
cost-effective maritime and rail transport and help boost high-precision agriculture. 

7https://ec.europa.eu/transport/themes/international/european_neighbourhood_policy/eastern_partnership/ten

t-maps_en 

8 https://ec.europa.eu/neighbourhood-enlargement/sites/near/files/eap_declaration_finalversion2604.pdf 
9 https://eeas.europa.eu/headquarters/headquarters-homepage/50699/connecting-europe-asia-eu-strategy_en 

7 

 
                                                           
 
Strong  policy  dialogue  and  developing  a  single  pipeline  of  infrastructure  projects  is  key  to 
optimising the portfolio of investments. Sound macroeconomic policies and public financial 
management,  creating  fiscal  space  for  public  investments,  ensuring  a  level  playing  field  to 
engage  with  private  sector,  including  through  public-private  partnerships,  are  necessary 
conditions to ensure the sustainability of infrastructure in all areas.  

4.1.4 Investing in people 

Investing in people is key to preparing for the future  and fostering societal and economic 
resilience.  Building  on  achievements  for  young  people,  the  EU  proposes  a  new  deal  for 
youth,  which  will  include  the  following  elements:  (i)  bridging  the  gap  between  the  labour 
market and the education sector; (ii) increasing support for the employability of youth and for 
youth entrepreneurship; (iii) active labour market measures, such as the Youth Guarantee, to 
be  adapted  to  the  partner  countries’  labour  markets;  and  (iv)  building  on  a  pilot  young  EaP 
civil  servants  job-shadowing  scheme,  setting  up  a  mobility  and  exchange  programme  for 
the EaP directed at young professionals. 

Education  reform  will  be  a  strategic  priority.  This  will  cover  inter  alia  (i)  governance  and 
capacity  building;  (ii)  modernisation  and  innovation  at  all  levels  of  education  and  training; 
(iii)  aligning  of  legislation  and  policies  with  the  European  developments,  including  the 
European Higher Education area (Bologna process) or Torino process for vocational education 
and  training;  and  (iv)  strengthening  teacher  training,  exchanging  best  practice  and  support 
the  introduction  of  modern  curricula  and  teaching  and  learning  practices.  The  Erasmus+ 
programme, as a key component of EU support to the modernisation and internationalisation 
of  education  and  training  systems,  will  provide  greater  mobility  and  capacity  building 
opportunities  in  formal  and  non-formal  education.  Participation  in  the  European  Solidarity 
Corps will allow young people to volunteer or work in projects that benefit communities and 
people  around  Europe.  The  flagship  European  School  in  Georgia  will  become  a  full 
secondary school in new premises.  

Research  and  innovation  are  crucial  for  creating  decent  and  sustainable  jobs.  The  EU  will 
continue  to  support  and  strengthen  the  smart  specialisation,  technology  transfer  and 
innovative  capacities  of  the  partner countries  as well  as  their  increased  participation  in EU 
programmes  such  as  Horizon  Europe  and  COSME.  National  public  research  and  innovation 
systems  need  to  improve  in  performance  and  competitiveness,  including  by  continuing 
reforms. The development of a common knowledge and innovation space between the EU 
and  the  partner  countries  should  be  fostered,  using  scientific  evidence  to  create  knowledge-
based  jobs  and  attract  investors  to  innovative  businesses  in  the  EU  and  the  neighbourhood. 
Research, innovation and transfer of knowledge are also key to modernisation of agriculture, a 
vital sector for a large part of the population in the EaP. As one of the EU’s main priorities for 
the future is to deliver under the European Green Deal, notably to become the world’s first 
climate-neutral  continent,  the  partner  countries  are  encouraged  to  identify  R&I  priorities 
linked to climate change mitigation and adaptation, and build new innovative and sustainable 
value  chains.  Joint  commitments  to  address  these  priorities  will  be  encouraged,  along  with 
definition of a strategy to make solutions available for rapid deployment. 

Furthermore,  the  EU  will  support  countries  maximise  the  potential  of  their  culture  and 
creative industries, as engines for sustainable social and economic development. The EU will 
promote the key role of culture to build openness and promote European values, and to foster 
intercultural dialogue for peaceful inter-community relations, and will reinforce cooperation in 
cultural heritage and creative industries including the audio-visual sector. 

4.2 Together for accountable institutions, the rule of law, and security 

Good  governance  and  democratic  institutions,  rule  of  law,  successful  anti-corruption 
policies,  fight  against  organised  crime,  respect  of  human  rights  and  security,  including 

8 

 
support to populations affected by conflict, are the backbone of strong and resilient states 
and  societies.  They  are  also  significant  preconditions  for  a  functioning  market  economy 
and for sustainable growth. In particular, rule of law is a key factor in ensuring an effective 
business climate and an important consideration in attracting foreign direct investment. 

Looking  ahead,  there  needs  to  be  a  renewed  commitment  to  the  fundamentals  of  the 
partnership in order to build on the achievements to date. In particular, the EU’s support for 
resilient  institutions,  rule  of  law  and  security  will  include:  (i)  proposing  ways  to  better 
measure  the  impact  of  judicial  reforms;  (ii)  consider  progress  in  rule  of  law  reforms  when 
deciding  on  assistance;  (iii)  reinvigorating  EU  support  for  fighting  corruption  and  economic 
crime;  (iv)  improving  cross-border  cooperation  to  better  protect  people  against  organised 
crime; and (v) stepping up support for security dialogues and cooperation. 

4.2.1 Judicial reforms 

Future reforms should be based on alignment with  European standards. There should be a 
holistic approach that covers prosecution and law enforcement services. The  independence 
and accountability of the judiciary and prosecution are essential, in a system of checks and 
balances, to ensure that all state institutions abide by the law and that citizens have access to 
justice and can exercise their rights fully. 

The EU will encourage the active role of international institutions and experts to support 
and  legitimise  reform  processes  and  will  look  to  its  own  expertise  on  rule  of  law  issues. 
Reforms  should  be  based  on  high  quality  reform  strategies  that  are  based  on  first-rate 
diagnostics of the issues that need be addressed. There is a need for better measurement of 
the  real  results/impacts  of  reforms  and  their  perceptions  by  citizens.  The  EU  will  support 
increase  the  capacity  of  the  relevant  national  institutions  to  deliver  judicial  training  on  the 
values and rules that justice practitioners, such as judges and prosecutors, need to adhere to in 
their work. 

In this critical area the EU will promote a  rule of law culture through close involvement of 
civil  society  and  business  community,  as  well  as  strengthened  cooperation  with  EU 
stakeholders. 

4.2.2 Tackling corruption and economic crime 

Corruption  undermines  the  rule  of  law  and  the  sustainable  development  of  societies.  New 
anti-corruption  digital  tools  help  to  prevent  and  detect  irregularities  better,  and  several 
specialised bodies have been set up in recent years to tackle corruption10. Despite this, a new 
level  of  rigorousness  is  needed  to  improve  investigation,  prosecution  and  sanction  of 
economic crime, thereby demonstrating that the anti-corruption and law enforcement bodies 
are  independent  and  deliver  results.  The  EU  will  support  a  results-driven  legislative  and 
institutional  framework,  with  a  focus  on  high-level  corruption,  and  will  pay  particular 
attention to the area of public procurement. In this respect, the potential of digital solutions 
for  improving  the  traceability  and  transparency  of  public  procurement  systems  will  be 
explored  to  the  full.  The  EU  will  also  help  the  partner  countries  integrate  integrity  and 
accountability in all levels of public administration, 

Corruption is one of the many aspects of a broader criminal phenomenon, namely  economic 
crime.  Partner  countries  need  to  step  up  their  efforts  to  establish  a  solid  and  effective 
framework  to  fight  economic  crimes.  In  this  regard,  registries  of  beneficial  ownership  are 
essential to  fight  money laundering.  It  is important  for  the  Eastern  partners  to  put  in place 

10 All the partner countries have ratified the United Nations Convention against Corruption. 

9 

 
                                                           
robust asset recovery frameworks, including by setting up functioning asset recovery offices 
that are in a position to trace and identify criminal wealth. This is crucial in view of freezing 
and  confiscating  illicit  assets,  and  for  the  recovery  of  criminal  proceeds  as  an  important 
instrument in the fight against organised crime.  

4.2.3 Combating organised crime and strengthening security 

One  shared  challenge  in  the  broad  area  of  security  is  organised  crime.  Here,  the  EU  will 
continue support: (i) increased cooperation with EU justice and home affairs agencies; (ii) 
security sector reform; (iii) the fight against trafficking of human beings and illicit goods 
(notably  drugs  and  firearms);  and  (iv)  integrated  border  management  to  improve  partner 
countries' ability to withstand the pressures they face and step up their resilience. The EU will 
continue cooperation  on cyber resilience with the partner countries. Moreover, a functional 
and  enforceable  framework  to  fight  cybercrime,  with  the  Council  of  Europe’s  Budapest 
Convention as a baseline, is fundamental. 

Continued  cooperation  between  the  partner  countries  and  the  EU  Civil  Protection 
Mechanism,  as  well  as  among  partner  countries,  will  be  key  to  enhance  prevention  of, 
preparedness  for,  and  response  to  natural  and  man-made  disasters.  Moreover,  unresolved 
conflicts continue to hamper development in the region. Under the agreed negotiating formats 
and  processes,  the  EU  is  committed  to  promote  the  peaceful  settlement  of  these  conflicts. 
Being conscious of the impact this can have on economic and social developments, the role of 
women  and  young  people  in  peacebuilding  will  be  strengthened  through  joint  actions  to 
further  the  EU’s  political  commitment  for  the  implementation  of  the  Women  Peace  and 
Security agenda 11 at regional and international levels. In particular, the EU will pursue efforts 
to support conflict prevention, confidence building and the facilitation of negotiated peaceful 
conflict settlements. The EU will also continue providing assistance to populations affected by 
conflicts  to  enhance  their  resilience.  Security  dialogues  and  practical  Common  Security 
and Defence Policy (CSDP) cooperation will also be strengthened to support contributions 
by partner countries to the European civil and military missions and operations. The EU will 
consider  providing  training  opportunities  and  capacity  building  to  the  partner  countries, 
including on countering hybrid threats, where appropriate. 

4.3 Together towards environmental and climate resilience  

The  European  Green  Deal  makes  it  clear  that  environmental  and  climate  challenges  require 
urgent action by the EU and the partner countries. Modernising economies and trade patterns 
will help reducing the risk of carbon leakage. This is also necessary given the achievements in 
economic integration and changing consumer preferences in the EU and the EaP. The EU will 
continue  to  link  the  partner  countries  to  the  increasingly  complex  and  high-end  economic 
value-chains as it transforms its own economy. The EU will also help partner countries fulfil 
their  nationally  determined  contributions  to  the  Paris  Agreement  and  modernise  their 
economies,  reducing  their  carbon  footprint  and  moving  towards  climate  neutrality,  while 
acknowledging the investment challenges. In this respect, the partner countries have expressed 
in  various  fora  their  support  to  the  comprehensive  approach  for  change  presented  in  the 
European Green Deal. It is equally important to implement the Sendai Framework for Disaster 
Risk Reduction and increase efforts in climate change adaptation. 

The  EU  will  work  together  with  the  partner  countries  to  transform  the  region  into  fair  and 
prosperous  societies,  with  modern,  resource-efficient,  clean,  circular  and  competitive 
economies,  while increasing  their  environmental  and  climate  resilience, including  through 
more sustainable use of natural resources. The prominence of the environmental and climate 
agenda is increasing in the region. Public demands are growing to: (i) improve air and water 

11 https://documents-dds-ny.un.org/doc/UNDOC/GEN/N00/720/18/PDF/N0072018.pdf?OpenElement 

10 

 
                                                           
quality; (ii) manage effectively waste, land, and water resources; and (iii) respond to extreme 
weather events and illegal logging and deforestation. This is also a significant opportunity to 
boost  activity  in  innovative  sectors.  Several  partner  countries  have  adopted  green  economy 
action plans and long-term strategies, which they  wish to speed up. Similarly, private sector 
partners  are  increasingly  considering  the  opportunities  of  a  greener,  circular  economy  and 
wish to address the risks caused by climate change. The partner countries can already benefit 
from Copernicus data and services, which are freely and openly available to support informed 
decision making in the region. 

The EaP will therefore need to: (i) scale up action in areas that are critical for people’s health 
and wellbeing; (ii) increase the resource-efficiency of economies; (iii) develop new green jobs 
and  economic  opportunities  linked  to  the  green  transition;  (iv)  develop  local  and  renewable 
sources  of  energy;  and  (v)  manage  natural  assets  to  maximise  sustainability.  The  EU  will 
support  this  transition,  giving  due  respect  to  global  challenges  and  environmental  and 
climate realities in the partner countries focusing first on the low-hanging fruit. 

4.3.1 Benefits for people’s health and wellbeing 

For environment-related quality of life, increased effort is needed to make urban development 
more sustainable and further improve the delivery of  environmental services, such as water 
supply  and  sanitation,  waste  management,  green  areas  and  urban  mobility.  The  EU  will 
support  actions  and  policy  development  aiming  at  preventing  and  reducing  pollution  and 
thereby decreasing the negative health impacts of in particular air, water and soil pollution and 
toxic chemicals, taking the EU’s zero pollution ambition as a guideline. The EU will scale up 
support for increasing the energy efficiency of buildings, which is essential to address energy 
poverty  and  reduce  greenhouse  gas  emissions.  Innovative  financing  instruments  (such  as 
energy performance contracts, on-tax and on-bill financing) could be used to achieve higher 
building  renovation  rates  through  attracting  private  finance. The  EU  will  support  the 
development  of  renewable  energy  sources,  notably  as  a  way  to  accelerate  the  reduction  of 
coal use, which is essential to reduce air pollution. The EU will continue to roll out tools and 
implement the  high-level energy efficiency initiative together with IFIs to  modernise energy 
legislation and put in place a smart regulatory framework that promotes energy efficiency and 
renewable  energy,  through  green  finance  schemes  and  by  involving  the  private  sector. 
Measures to reconvert those cities or regions that suffer most from pollution will be identified.  

In the area of public health, the EU will support the partner countries in the modernisation of 
medical facilities, e-health, training of medical staff and providing affordable medical care and 
promoting  access  to  people  across  society.  This  will  include  support  in  better  addressing 
communicable  and  non-communicable  diseases  as  in  the  case  of  the  coronavirus  disease 
(COVID-19). 

4.3.2 Circular economy 

Facilitating  the  transition  to  resource  efficient  and  circular  economies  will  be  the  principal 
goal  of  action.  Reducing  wasteful  production  is  a  key  starting  point  to  increase 
competitiveness  at  a  relatively  low  cost.  In  terms  of  new  economic  opportunities  and 
competitiveness, the EU will promote the green, circular economy based on the outcomes of 
the recent policy dialogue. The EU will support businesses and business-to-business contacts 
in this area. Circular economy field trips will take place upon countries’ request. Work will 
continue on the promotion of sustainable product policies, eco-innovation, extended producer 
responsibility,  other  ways  to  prevent  and  reduce  waste,  waste  management,  green  public 
procurement and better consumer information. The EU will engage with the partner countries 
towards  reforming  a  number  of  resource-intensive  sectors  such  as  plastics,  textiles  or 
construction. Opportunities for green jobs will be carefully identified. Key sectors will benefit 
from  an  analysis  of  possible  measures  to  boost  jobs  and  competitiveness  through  a  green, 
circular economy. 

11 

 
4.3.3 Economy’s natural assets base 

Halting  the  loss  of  biodiversity  will  be  one  of  the  main  goals  of  cooperation.  This includes 
tackling deforestation and desertification, introducing measures to protect specific species and 
extending  and  effectively  managing  protected  areas.  It  also  includes  working  together  with 
other sectors on reducing the negative impact of human activities on biodiversity. To preserve 
natural resources, that form the basis of economies, the EU will further work with the partner 
countries  to  address  water  quality  and  availability  and  improve  control  and  surveillance  for 
fishing  activities  to  tackle  overexploitation.  River-basin  management  planning  will  be 
extended to all river basins. We will continue cooperation on  unlocking the potential of the 
raw  materials  sector  to  contribute  to  the  Sustainable  Development  Goals,  tackling 
deforestation  and  improving  sustainable  forest  management  including  as  long-term  carbon 
storage and fossil substitutes. Efforts will be made to reduce illegal logging and make timber 
traceable.  The  EU  will  support  sustainable  agriculture, fisheries,  and  food  safety  through 
knowledge  transfer  and  innovation,  in  particular  in  sectors  with  high  benefit.  It  will  also 
continue  to  strengthen  the  position  of  farmers  and  fishermen  in  the  value  chain  while 
improving the quality of life in rural and marine coastal areas.  

4.3.4 Policies and governance in support of greener growth 

To  succeed  the  partner  countries  will  need  to  invest  further  in:  (i)  environmental 
governance; (ii) the sound planning of policies and investments; (iii) administrative capacity 
to implement and enforce legislation; (iv) enhanced public access to information, awareness, 
and participation; and (v) more adapted and effective financing mechanisms. This will require 
strong  policy  dialogue  and  improved  outreach  to  all  stakeholders,  including  the  relevant 
parliamentary  committees.  Raising  awareness,  including  by  teaming  up  with  civil  society, 
will also be important. The EU better support issue-specific leadership roles of Member States 
and partner countries in specific areas to encourage faster implementation of  modern policies 
and  practices,  and  increase  the  countries’  ownership.  The  Common  Maritime  Agenda  for 
the Black Sea12 will contribute as a regional governance framework. 

4.3.5 Strengthening energy security and nuclear safety 

To  strengthen  energy  security,  diversification  of  the  energy  mix  is  necessary,  notably  via 
renewable energy sources. Partner countries are competent in deciding on their own energy 
mix in view of achieving their respective climate targets. Some countries may choose nuclear 
as a low carbon energy source to play a role in meeting those targets. In this context, the EU 
will  continue  to  contribute  to  strengthening  international  nuclear  safety.  The  EU’s 
forerunner role in binding nuclear legislation will be the basis of further bilateral exchanges. 
We will continue to organise nuclear stress test peer reviews and follow-up activities. The EU 
will  also  share  its  experience  in  the  fields  of  decommissioning,  radioactive  waste 
management,  and  radiation  protection.  The  participation  of  partner  countries  in  the  EU 
arrangements for environmental monitoring – EURDEP – and for exchanging information in 
case of radiological or nuclear emergencies – ECURIE – is also of key importance. 

4.3.6. Accelerating the shift to sustainable and smart mobility 

Transport  has  to  become  more  sustainable  and  transport  policies  in  the  EaP  should  be 
revamped  to  ensure  reduction  of  greenhouse  gas  emissions.  Therefore  the  EU  will 
increasingly  work  with  partner  countries  on  green  transport  solutions,  by  helping  build 
future-oriented smart cities creating urban mobility plans to integrate transport modes in urban 

12 https://ec.europa.eu/maritimeaffairs/press/black-sea-ministers-endorse-common-maritime-agenda_en 

12 

 
                                                           
 
areas.  For  the  long  haul  this  will  include  optimisation  of  transport  including  through 
digitalisation. 

4.4 Together for a resilient digital transformation  

As indicated in the Strategy on Shaping Europe’s digital future13, a strong digital presence 
in  the  EU’s  neighbourhood  will  enable  growth  and  drive  sustainable  development.  In  this 
respect, the EU will invest further in the  digital transformation of the partner countries, in 
line with EU legislation and best practices. Work in this area beyond 2020 will aim to extend 
the  benefits  of  the  Digital  Single  Market  to  the  partner  countries  and  support  the  full 
implementation  of  the  partner  countries’  commitments  in  the  Association  Agreements  and 
other  bilateral  agreements.  Work  will  build  on  the  success  of  the  policy  initiative  for  the 
Harmonisation  of  Digital  Markets  in  the  EaP  and  the  operational  programmes  launched 
under the EU4Digital brand. 

4.4.1. Digital infrastructure 

A  modern  economy  based  on  data can  only  be  fully  realised if  citizens and  businesses  have 
access  to  high  quality  electronic  communications  infrastructure  and  services  at  affordable 
prices. The EU will continue to support the strengthening of the independence of  regulatory 
authorities  where  appropriate  and  the  establishment  of  the  necessary  regulatory  powers,  to 
allow  the  proper  functioning  of  the  electronic  communications  markets  in  the  partner 
countries.  The  EU  will  also  continue  to  support,  notably  through  technical  assistance  and 
exchange  of  best  practices,  the  extension  of  secure  and  very  high  capacity  Gigabit 
broadband  infrastructures  in  partner  countries,  in  particular  in  remote  or  less  densely 
populated areas, and to foster its use. Ensuring services are available at affordable prices will 
be important to maximise impact for the EaP population. In this context, the EU will support 
the  implementation  of  roaming  and  spectrum  agreements among  the  partner  countries  and, 
where appropriate, with the EU. 

4.4.2 eGovernance 

The EU will support further the strengthening of eGovernance in the EaP region, in order to 
increase  efficiency,  transparency  and  accountability  for  public  administrations  and  facilitate 
reforms. In this respect, the EU will support the adoption of legal frameworks for  electronic 
identification  schemes  and  electronic  trust  services  in  the  EaP,  in  line  with  EU  legislation 
and  best  practices,  in  order  to  pave  the  way  for  mutual  recognition  agreements  among  the 
partner  countries  and  with  the  EU.  Standardised  interoperable  eServices  platforms  will  be 
supported. 

4.4.3. Digital economy and innovation  

The  EU  will  support  EaP  governments  in  developing  digital  innovations  programmes  and 
support  the  scaling  up  of  highly  innovative  digital  start-ups  in  the  EaP  region  through  the 
extension  of  the  Digital  Innovation  and  Scale-up  Initiative  to  the  partner  countries.  In 
particular,  it  will  assist  digital  start-ups  and  SMEs to  improve  their access  to  finance,  better 
reach into EU markets, and strengthen links with EU innovation ecosystems. EU space-based 
data  and  services  of  the  flagship  programmes  Copernicus  and  Galileo  are  already  available 
freely  and  openly.  The  EU  will  cooperate  with  Eastern  Partnership  countries  to  boost  their 
uptake  to  enable  innovative  start-ups  and  SMEs  and  facilitate  business  cooperation  across 
borders. 

13 https://ec.europa.eu/info/sites/info/files/communication-shaping-europes-digital-future-feb2020_en_4.pdf 

13 

 
                                                           
 
The  EU  will  further  support  the  partner  countries  to  address  the  digital  skills  gap  with 
particular focus on gender equality and social inclusiveness. 

4.4.4. Cyber resilience  

The  EU  will  further  support  and  assist  the  cyber  resilience  of  the  partner  countries.  The 
development of robust legal, policy and operational cybersecurity  frameworks in the partner 
countries will continue to be supported, based on EU legislation and best practices, including 
the EU’s cybersecurity certification framework. 

4.5 Together for resilient, fair and inclusive societies 

Transparent,  citizen-centred  and  accountable  public  administrations,  and  free  and  fair 
elections, are essential for democracy. Together with an engaged civil society, free, plural and 
independent media and the protection of citizens’ rights, these are key ingredients for resilient, 
fair, inclusive, and democratic societies. 

Cooperating with the partner countries in these areas will be a key priority for the EU. Access 
to  evidence-based  information  supports  democratic  systems  and  empowers  people  to  make 
informed  choices.  As  addressing  migration  challenges  is  also  a  joint  priority,  the  EU  will 
continue to work with the partner countries to ensure mobility and people to people contacts in 
a secure and well-managed environment, as well as to ensure support to vulnerable migrants 
and refugees. 

4.5.1 Public administration reform and civic engagement 

For public administration reform, continued political will from partner countries is crucial to 
ensure  that  authorities  involve  citizens  in  decision-making.  The  EU  will  support  inclusive 
and evidence-based policy development, as well as sound public financial management, with 
the  aim  of  improving  services  to  people  and  businesses.  The  partner  countries  need  to 
professionalise  their  civil  service  and  increase  accountability  at  all  levels  of  government. 
Public administration reform, including issues related to transparency, is also a key driver of 
economic  growth  and  can  reduce  corruption  risks,  for  example  through  e-government 
solutions.  Furthermore,  the  EU  and  the  partner  countries  will  consider  intensifying  peer-to-
peer  learning,  including  through  an  EaP  School  of  Public  Administration.  Monitoring  the 
implementation of reforms remains crucial, and civil society should play a stronger role in it. 

4.5.2 Civil society and youth participation 

Building  on  innovative  actions  and  engagement  to  date,  the  EU  will  further  support  the 
capacity of civil society organisations, particularly grass root organisations, to meaningfully 
engage  in  policy-making  processes  and  policy  dialogue,  and  promote  reforms  and  public 
accountability.  It  will  develop  further  strategic  partnerships  with  key  organisations  to 
strengthen cooperation, build up the leadership skills of civil society activists, and engage with 
social  partners  (trades  unions  and  employers’  organisations).  Social  innovation  and  social 
entrepreneurship  will  also  be  supported.  Working  with  the  partner  countries  to  promote  an 
enabling environment for civil society will be key. The EaP Civil Society Forum will continue 
to be a key partner in advancing the role of civil society in policy dialogue. 

The EU will also increasingly focus on youth participation and leadership. The Erasmus+ 
and  European  Solidarity  Corps  programmes  will  empower  the  young  generation  by 
contributing  to  the  establishment  of  inclusive  and  evidence-based  youth  policy,  developing 
skills,  supporting  volunteering  and  cooperation  projects.  The  Civil  Society  Fellowships 
scheme and the Young European Ambassadors initiative will be strengthened to better help 
young  people  to  develop  key  competences  and  skills,  including  awareness  on  the  need  to 

14 

 
 
address gender inequalities and  for their active participation in democratic life and fostering 
civic  engagement.  The  EaP  Youth  Forum  will  play  even  greater  role  and  become  better 
integrated  in  structured  youth  policy  dialogue  within  a  network  of  EaP  youth  councils, 
modelled on the EU-internal youth structured dialogue. 

4.5.3 Independent media and fact-based information 

In  a  well-functioning  media  environment  independent  journalists,  civil  society  and 
individuals  can  provide  checks  and  balances  and  hold  governments  accountable.  Ensuring 
access  to  accurate  and  fact-based  information  for  all,  empowers  people  to  make  informed 
decisions and participate actively in the democratic process. The EU will support independent 
media outlets that produce high quality and diverse content. With the adoption of the  Action 
Plan against disinformation14 in December 2018, the EU put in place a strong framework to 
counter  disinformation  threats  inside  and  outside  the  EU.  Looking  ahead,  all  relevant 
actors,  including  EU  institutions,  EU  Member  States,  partner  countries,  industry  and  civil 
society  should  continue  to  play  a  role  in  scaling  up  independent  fact-checking  services,  and 
promoting media literacy. Strengthening work with civil society to tackle disinformation will 
be also key. 

4.5.4 Protection of human rights 

The  EU  will continue  to support  the  partner  countries  in  advancing  human rights,  including 
ensuring  that  everyone  can  fully  enjoy  civil  and  political,  as  well  as  economic,  social  and 
cultural rights. The EU will step up action to combat all forms of discrimination including on 
grounds of sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation. 
The EU will support partner countries in their implementation of the UN Convention on the 
Rights  of  Persons  with  disabilities,  as  well  in  the  development  of  accessible  products  and 
services. The EU will also continue to support the partner countries in ensuring respect for 
rights already exercised of persons belonging to minorities, conflict affected populations, 
and promoting gender equality. 

To ensure a high level of protection of the fundamental rights to privacy and data protection, 
the  EU  will  continue  to  engage  with  Eastern  partner  countries  to  promote  further  converge 
with  EU  and  international  data  protection  standards,  in  order  to  facilitate  commercial 
exchanges and law enforcement cooperation. 

4.5.5 Mobility 

To ensure mobility and people-to-people contacts in a secure and well-managed environment 
the successful implementation of existing agreements on  visa facilitation and readmission, 
as well as the continuous fulfilment of relevant visa liberalisation benchmarks, are essential. 
The  possibility  to  launch  new  visa  liberalisation  dialogues  with  the  remaining  countries, 
whose  citizens  require  visas  to  travel  to  the  EU,  will  be  considered,  provided  that  well-
managed  and  secure  mobility  conditions  are  in  place,  including  through  the  satisfactory 
implementation  of  the  visa  facilitation  and  readmission  agreements. Complementing  this, 
balanced and mutually beneficial mobility partnerships will ensure sustainable engagement. 
Labour migration initiatives amongst the partner countries as well as between EaP and EU 
countries will be considered which aim to establish partnerships to foster legal migration and 
mobility, enhancing cooperation and cross fertilisation of skills and competencies while taking 
account of the impact of brain drain on partner countries’ human capital. To help people and 
goods  move  across  borders,  technical  and  administrative  cooperation  in  integrated  border 
management will be strengthened. 

14 https://eeas.europa.eu/sites/eeas/files/action_plan_against_disinformation.pdf 

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5.  STRATEGIC COMMUNICATION, GOVERNANCE AND IMPLEMENTATION 

5.1 Strategic communication 

Strategic  communication  is  crucial  for  building  resilience,  and  is  a  core  duty  for  policy-
makers at the service of citizens. In the EaP, a call for stronger and more strategic approach to 
communication has gained high political attention in recent years, also in the wake of growing 
disinformation against EU values. Joint work between the European Commission services and 
the European External Action Service therefore aims to strengthen the EU’s communication in 
partner countries through clear, story-based, tailor-made messaging, and raising awareness of 
the  positive  impact  of  EU  policies  and  actions  to  people  across  the  region,  with  the 
overarching  message  ‘Stronger  Together’.  The  EU  has  also  taken  key  steps  in  promoting 
better  EU  visibility  by  moving  away  from  a  project-based  communication  to  national  and 
more  thematic,  campaign-based  communication  to  avoid  fragmentation  of  branding.  EU 
actions are systematically branded under the ‘EU4’ heading (e.g. EU4Energy, EU4Business, 
EU4Digital,  and  EU4Georgia).  Brand  development  has  also  flexibly  allowed  for  country-
specific positioning (e.g. Moving Forward Together in Ukraine). Focus is on outreach to key 
multipliers,  such  as  young  people,  to  help  promote  EU  values  and  actions  in  the  partner 
countries.  For  instance  through  the  Young  European  Ambassadors  initiative  involves  740 
young  people  who  spread  positive  messages  about  the  EU  in  their  local  communities.  This 
strengthened  and  coordinated  approach  has  led  to  a  better  understanding  of  and  increased 
credibility for the EU among citizens across the EaP15. 

The structured consultation on the future of the EaP demonstrated the  broad consensus and 
expectation  of  stakeholders  and  citizens  to  continue  to  work  on  and  reinforce  successful 
initiatives to make EU communication more strategic and impactful in the wake of  growing 
disinformation against EU values. 

Communication on the European Union and its relations with the partner countries should be 
carried  out  with  ownership  and  with  joint  responsibility,  to  citizens  of  both  the  EU 
Member  States  and  the  partner  countries.  In  this  context,  EU  countries,  partner  country 
governments,  local  administrations,  implementing  partners  of  EU-funded  projects,  and  EU 
institutions (including EU delegations), should work together to communicate the benefits of 
cooperation, based on joint policy priorities and overall promoting the EU in the region. This 
communication  should  be  in  the  framework  of  a  common  European  narrative,  based  on 
shared values and the benefits of cooperation to the lives of people. 

Engagement  with  people  at  local  level  and  in  national  and  minority  languages,  as  well  as 
Russian,  should  be  increased  to  improve  the  understanding  of  EU  values,  political  priorities 
and actions. Outreach will focus on key multipliers and opinion leaders (including but not 
limited  to  local  authorities,  religious  leaders,  and  teachers,  through  study  visits,  local 
discussion fora and trainings) to make the EU message heard in the regions. 

Outreach to young people will increase, for example through the promotion of teaching and 
learning  about  the  European  Union  in  different  levels  of  education.  The  inclusion  of  EU-
related information into educational curricular in schools will be supported. 

15  Annual  Opinion  polls  carried  out  by  European  Commission’s  “EU  Neighbours  East”  show  a  steady 
increase in the positive perception of the EU by citizens from across the partner countries, with 52% of 
citizens (up 7 percentage points since 2016) having a positive image of the EU in 2019. An overall 67% 
of the population (up 4%) believe that relations between their country and the EU are positive and the 
EU remains the most trusted foreign institution for 58% of citizens. 

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5.2 Governance and implementation 

The  revised  multilateral  EaP  architecture  adopted  at  the  2017  Summit  is  a  useful 
framework  for  exchanges  and  cooperation,  through  regular  meetings  and  exchanges.  As 
confirmed  by  most  stakeholders  in  the  consultation,  the  current  framework  is  valid  and 
should  continue,  with  the  necessary  adjustments  to  bring  it  in  line  with  the  main  policy 
objectives post 2020 outlined in this joint communication. The focus will be on making the 
existing structures more effective.  One of the first tasks of the platforms and panels under 
the EaP architecture will be to shape the future deliverables based on the priorities set out 
in this joint communication. 

The  priorities  outlined  in  this  joint  communication  will  also  underpin  the  future 
programming of EU assistance for 2021-2027, along with the joint documents between the 
EU  and  partner  countries  setting  out  common  priorities  (e.g.  Partnership  Priorities  and 
Association  Agendas).  Under  the  renewed  policy,  the  EU  and  the  partner  countries  will 
continue working on joint endeavours and actions, and will receive support, capacity building 
and  knowledge  sharing  on  specific  objectives  and  policies  as  necessary.  Regional-wide 
programmes will be implemented in the field with financial and logistical support from IFIs. 
Coherence and complementarity between all EU interventions should be ensured, as well as a 
clear link between the policy and the programming, including future Interreg NEXT and other 
territorial cooperation programmes. 

Civil society organisations are crucial for disseminating EU-positive messages outside of the 
capitals, and ensuring lasting results and better services for people on the ground. As part of 
the  its  new  approach  to  civil  society  in  the  partner  countries,  the  EU  has  established 
framework  partnership  agreements  with  key  civil  society  organisations  to  better  channel 
support and increase impact. Increased re-granting through these key partners should further 
increase outreach in the East, including by smaller, local organisations that operate in the local 
languages. 

The  EU  will  engage  more  systematically  with  think  tanks  covering  the  EaP.  This  will 
support education and awareness-raising initiatives of these countries and ensure that people 
are better informed and therefore more likely to support development reforms. 

The  EU  intends  to  further  step  up  its  partnership  with  IFIs,  by  making  better  use  of  the 
possibilities offered by the EFSD guarantees to strengthen resilience of our partner countries 
and  boost  the  private  sector,  while  upholding  commitments  stemming  from  the  Association 
Agreements and other bilateral agreements. 

The  EU  will  also  strengthen  joint  ownership  and  partnership  among  EU  countries  to 
better support the ambitious reform agenda. In this way, partner countries can benefit from EU 
expertise and experience. 

6.  CONCLUSION AND NEXT STEPS 

The recent structured consultation clearly underlined that the continued success of the Eastern 
Partnership  will  depend  on  strengthening  joint  ownership,  reinforcing  an  ambitious  reform 
agenda, and tackling joint challenges. EU Member States, partner countries and civil society 
have the joint responsibility to ensure a robust and relevant partnership that benefits the whole 
of  society.  The  joint  commitment  to  this  new  approach  will  benefit  people  in  all  partner 
countries, and will contribute to building a stronger Europe in the world. 

This joint communication proposes strengthening  resilience as an overriding objective, with 
the EU, its Member States and the partner countries  working together towards the following 
long-term policy objectives for the EaP beyond 2020: 

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 
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together for resilient, sustainable and integrated economies; 
together for accountable institutions, the rule of law and security; 
together towards environmental and climate resilience; 
together for a resilient digital transformation  
together for resilient, fair and inclusive societies. 

The  European  Council, the  European  Parliament and  the  Council  are  invited to  endorse this 
joint  communication  that  will  also  be  presented  to  the  European  Economic  and  Social 
Committee and the Committee of the Regions.  It will also be discussed with partner countries 
in view of the EaP Summit in June 2020. 

The EaP Summit will give a mandate to develop a new set of tangible deliverables building 
on the current agenda, with the aim to put the recommendations outlined in this document into 
practice. Shaping the future deliverables for beyond 2020 will therefore be a key task for the 
second half of 2020. 

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