JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Renewed partnership with the Southern Neighbourhood A new Agenda for the Mediterranean
Date: 2021-02-09
Institutions: Directorate-General for Neighbourhood and Enlargement Negotiations, European Commission
Subjects: European neighbourhood policy, Mediterranean region (EU), climate change policy, cooperation policy, democracy, economic recovery, human rights, peacekeeping, rule of law, sustainable development

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 9.2.2021  JOIN(2021) 2 final  JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Renewed partnership with the Southern Neighbourhood            A new Agenda for the Mediterranean        {SWD(2021) 23 final}  
 
 
Introduction 
Twenty-five  years  ago  the  European  Union  and  the  Southern  Mediterranean  partners1 
committed  to  turning  the  Mediterranean  basin  into  an  area  of  dialogue,  exchange  and 
cooperation,  guaranteeing  peace,  stability  and  prosperity.  The  25th  anniversary  of  the 
Barcelona Declaration reminds us that a strengthened Mediterranean partnership remains 
a strategic imperative for the European Union, as the challenges the region  continues to 
face  require  a  common  response,  especially  ten  years  after  the  Arab  Spring.  By  acting 
together, recognising our growing interdependence, and in a spirit of partnership, we will turn 
common challenges into opportunities, in our mutual interest.  

To  this  end  and  within  the  framework  of  the  European  Neighbourhood  Policy  this  Joint 
Communication  proposes  a  new,  ambitious  and 
the 
Mediterranean,  drawing  for  the  first  time  on  the  full  EU  toolbox  and  the  ground-breaking 
opportunities  of  the  twin  green  and  digital  transitions,  in  order  to  relaunch  our  cooperation 
and  realise  the  untapped  potential  of  our  shared  region.  The  perspective  of  the  post-
COVID-19 recovery offers a rare opportunity for Europe and the Mediterranean region 
to  commit  to  a  common  and  people-centred  agenda  and  the  actions  necessary  for  its 
implementation. 

innovative  Agenda 

for 

The  Southern  Mediterranean  region  is  facing  governance,  socio-economic,  climate, 
environmental  and  security  challenges,  many  of  which  result  from  global  trends  and 
call  for  joint  action  by  the  EU  and  Southern  Neighbourhood  partners.  Protracted 
conflicts continue to inflict terrible human suffering, trigger significant forced displacement, 
weigh  heavily  on  the  economic  and  social  prospects  of  entire  societies,  especially  for 
countries  hosting  large  refugee  populations,  and  intensify  geopolitical  competition  and 
outside  interference.  Too  many  people  risk  their  lives  by  attempting  to  enter  the  EU 
irregularly, fuelling a smuggling industry that is ruthless, criminal and destabilising to local 
communities.  The  threats  of  terrorism,  organised  crime  and  corruption  continue  to  feed 
instability  and  stifle  prosperity.  Economic  growth  in  the  Southern  Neighbourhood  has  not 
kept  pace  with  demographic  growth.2  The  region  has  one  of  the  lowest  levels  of  regional 
economic  integration  in  the  world3.  Unsustainable  use  of  natural  resources  and  climate 
change4  jeopardise  access  to  water,  food,  and  energy,  accelerate  desertification  and  loss  of 
biodiversity, and threaten lives and livelihoods. Significant economic and gender inequalities 
persist, and governments struggle to meet the aspirations of today’s youth. 

1  

2  

3  

4  

Algeria, Egypt, Israel, Jordan, Lebanon, Libya, Morocco, Palestine, Syria and Tunisia. The designation 
Palestine  shall  not  be  construed  as  recognition  of  a  State  of  Palestine  and  is  without  prejudice  to  the 
individual positions of the Member States on this issue. 
Average  GDP  per  capita  is  less  than  one  eighth  of  the  EU’s  2020  Edition,  Statistics  on  European 
Neighbourhood Policy countries 2020 Edition, Eurostat. 
With  mere 5.9% exports to the region,  intra-regional trade is a fraction of the countries’ total trade - 
https://ec.europa.eu/trade/policy/countries-and-regions/regions/euro-mediterranean-partnership/ 
According  to  the  Mediterranean  Experts  on  Climate  and  environmental  Change  report  first 
Mediterranean assessment report, the region warms 20% faster than the rest of the world. 

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The urgency of addressing these challenges is further reinforced by the COVID-19 pandemic, 
which has illustrated starkly shared vulnerabilities and our mutual interdependence. The new 
Agenda for the Mediterranean incorporates new areas and forms of cooperation identified 
during  the  crisis.  The  new  Agenda  for  the  Mediterranean  offers  opportunities  for  new 
partnerships  on  strategic  priorities  of  green  and  digital  transition  and  is  based  on  the 
conviction  that  sustainable  prosperity  and  resilience  can  only  be  built  in  strong  partnership 
across the Mediterranean. Our partnership will be based on common values and dialogue, and 
progress  on  our  shared  socio-economic  and  political  agenda,  including  on  reforms  in  areas 
such  as  governance  and  the  rule  of  law,  and  macroeconomic  stability  and  the  business 
environment.  The  new  Agenda  aims  for  a  green,  digital,  resilient  and  just  recovery, 
guided by the 2030 Agenda for Sustainable Development5, the Paris Agreement and the 
European Green Deal6.  

This  Communication  sets  out  the  objective  for  the  years  to  come  to  build  fairer  and  more 
prosperous and inclusive societies for the benefit of people, especially youth. 

To  seize  this  momentum,  the  Joint  Communication  proposes  the  following  key  directions 
for our partnership: 

-  An “Economic and Investment  Plan for the Southern Neighbours” will help spur long-
term  socio-economic  recovery,  foster  sustainable  development,  address  the  region’s 
structural  imbalances,  and  tap  into  the  region’s  economic  potential.  The  plan  includes 
concrete flagship initiatives in priority sectors. It aims to increase the region’s attractiveness 
towards investors. We will seek strategic engagement with international financial institutions 
(IFIs),  in  particular  the  European  Investment  Bank  (EIB)  and  the  European  Bank  for 
Reconstruction  and  Development  (EBRD),  the  World  Bank,  the  International  Monetary 
Fund,  as  well  as  banks  from  the  region  and  the  private  sector.  A  renewed  commitment  to 
implement  and  support  inclusive  socio-economic  reforms,  especially  of  the  business 
environment,  sustainable  economic  growth  and  stability-oriented  macroeconomic  policies 
underpinned by a long-term strategy, is essential for these initiatives to succeed. 

The  Economic  and  Investment  Plan  is  indicative  and  non-exhaustive  and  may  evolve 
depending on progress on policy and political issues and in bilateral relations between partner 
countries. In the period 2021-2027, subject to the entry into force of the relevant legal bases 
under the next Multi-annual Financial Framework and without prejudging the outcome of the 
programming process, the Commission proposes to mobilise up to EUR 7 billion under the 
Neighbourhood  and  Development  and  International  Cooperation  Instrument  (NDICI)7.  This 
support includes provisioning for EFSD+ guarantees and blending under the Neighbourhood 
Investment  Platform,  which  would  help  mobilise  private  and  public  investments  of  up  to 
EUR 30 billion

 in the Southern Neighbourhood.

5  

6  
7  

UN Resolution 70/1 Transforming our world: the 2030 Agenda for Sustainable 
Development. 
‘The European Green Deal’ (COM(2019) 640) 
This  is  subject  to  the  final  adoption  of  the  draft  Regulation  establishing  the  Neighbourhood, 
Development and International Cooperation Instrument. 

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-  Joining  forces  to  fight  climate  change,  decrease  harmful  emissions,  use  resources 
sustainably and speed up the green transition. We need to prepare for long-term scenarios 
where new forms of low-carbon  energy  gradually  replace fossil fuels. For this purpose, the 
Commission  will  propose  to  partner  countries  comprehensive  initiatives  promoting  climate 
neutral, low carbon and renewable energy, building on key elements of the European Green 
Deal such as the Hydrogen Strategy8. Fostering investments, in energy efficiency, renewable 
energy and a new focus on clean hydrogen production, including through adequate regulatory 
and financial incentives, and the regional integration of electricity markets and networks will 
be  priorities.  This  will  contribute  to  preserving  our  Mediterranean  common  goods  to  the 
benefit  of  all.  We  will  also  help  our  partners  increase  their  resilience  to  climate  change  by 
reinforcing our action on adaptation in particular in key vulnerable sectors such as agriculture 
and water. 

-  A  renewed  commitment  to  the  rule  of  law,  human  and  fundamental  rights,  equality, 
democracy  and  good  governance  as  the  bedrock  for  stable  fair,  inclusive  and  prosperous 
societies, with respect for diversity and tolerance. Respect for human rights, including social 
and labour  rights,  gender equality and  rights of the child, builds citizen’s trust. The rule of 
law  and  strong  institutions  that  protect  rights  and  fight  inequalities,  serve  human  and 
economic development by contributing to a safe and predictable business environment, help 
attract  foreign  direct  investment,  increase  economic  resilience  and  combat  poverty  and 
inequalities.  Democratic  governance  and  the  systems  of  a  responsive  state,  accountable 
institutions  and  the  fight  against  corruption  further  underpin  this  commitment.  Combatting 
manifestations  of  intolerance,  racism,  homophobia,  anti-Semitism,  anti-Muslim  hatred  and 
other  forms  of  xenophobia  as  well  as  protecting  minorities  must  remain  a  shared  priority 
across the region.  Special  attention will be given to the promotion of  the role of  women in 
society and the economy. 

 -

Jointly  addressing  the  challenges  of  forced  displacement  and  irregular  migration  and 
seizing the benefits of legal migration efficiently and effectively, through comprehensive 
tailor-made  and  mutually  beneficial  partnerships,  protecting  migrants  and  refugees’ 
rights, in line with the European New Pact on migration and asylum9. This is crucial for 
Europe  and  the  Southern  Mediterranean,  where  migration  flows  are  affecting  both  hosting 
societies and transit countries. The increased opportunities and jobs that will be generated by 
the Economic and Investment Plan, especially for women and young people, will contribute 
to reducing factors that lead to irregular migration. Acting together as partners is key.  

 - A renewed commitment to unity and solidarity between EU Member States, as well as a 
mutual  and  shared  commitment  and  joint  actions  with  partners  in  the  Southern 
Neighbourhood,  is  a  precondition  for  the  effective  implementation  of  the  Agenda  for  the 
Mediterranean.  This  holds  true  for  efforts  to  resolve  conflicts  and  address  shared  security 
concerns,  as  well  as  for  economic  and  sectoral  cooperation.  The  full  engagement  of  EU 
Member States is especially important. Their diplomatic networks, long-standing security and 

8  
9  

‘A hydrogen strategy for a climate-neutral Europe’ (COM (2020) 301). 
‘A New Pact on Migration and Asylum’ COM(2020) 609. 

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development  cooperation,  and  their  capacity  to  mobilise  the  private  sector,  will  be 
indispensable in reaching the ambitious objectives set  out in this  Communication.  To build 
such a unified effort, we propose to strengthen significantly the political and policy dialogue 
across  the  Mediterranean.  Efforts  will  continue  to  enhance  regional  cooperation,  with  the 
Union  for  the  Mediterranean  (UfM)  as  a  focal  point,  and  support  sub-regional  and  inter-
regional cooperation, notably with African partners10. The EU will also be ready to explore 
further  regional,  sub-regional  or  trilateral  cooperation  and  joint  initiatives  between 
partner  countries  across  the  board,  including  in  light  of  the  recent  normalisation  of 
relations between Israel and a number of Arab countries.  

The  renewed  partnership  for  the  Mediterranean  and  the  accompanying  Economic  and 
Investment Plan will allow the EU and  its Southern  Neighbourhood partners  to  address the 
many challenges facing our joint region today.  

The new Agenda for the Mediterranean proposes a range of actions along the following key 
policy areas: 

 1) Human development, good governance and the rule of law 
 2) Strengthen resilience, build prosperity and seize the digital transition 
 3) Peace and security 
 4) Migration and mobility 
 5) Green transition: climate resilience, energy, and environment 

1. 

Human development, good governance and the rule of law

Human Development 

A human development approach is a key element of our Agenda. This approach aims to 
improve people’s  quality  of life beyond  the economic dimension, upholding their  freedoms 
and  rights,  providing  them  with  opportunities,  and  fostering  resilient,  fair,  inclusive  and 
empowered societies.  

Health 

Health is the first and foremost condition for decent life. The COVID-19 pandemic has 
raised  challenges  to  health  security  and  healthcare  systems  and  impacted  deeply 
economies and whole societies. The EU and our partners will need to draw the lessons from 
the  COVID-19  crisis  to  strengthen  health  systems  and  social  protection  systems, 
preparedness and response capacities. The EU has and will continue to provide swift and 
substantial  support  to  alleviate  the  disproportionate  burden  of  the  crisis  on  the  most 
vulnerable and those at-risk, including youth and women11. Vaccines are a global common 
good  and  vaccination  is  what will  help  to  put  an  end  to  the pandemic  worldwide.  The 
EU  will  maintain  its  support  to  the  COVAX  Facility,  including  the  establishment  of  a 

10  

11  

In  the  spirit  of  the  “whole  of  Africa”  approach  and  in  line  with  Joint  Communication  'Towards  a 
comprehensive Strategy with Africa’ (JOIN(2020) 4) 
A support package of over EUR 2.3 billion for the Southern Neighbourhood was mobilised under the 
EU budget in the aftermath of the COVID-19 outbreak. 

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humanitarian buffer of about 100 million doses. In a Team Europe spirit, the EU has so far 
mobilised EUR 853 million in support of COVAX, and remains committed to COVAX as the 
global initiative to ensure equitable and fair access to safe and effective vaccines for Low and 
Middle  Income  Countries.  Moreover,  building  on  the  experience  of  the  EU’s  Vaccine 
Strategy, the Commission is ready to set up an EU vaccine sharing mechanism. This would 
ensure the sharing of access to some of the 2.3 billion doses secured by the EU with special 
attention given to the Southern Neighbourhood, alongside the Western Balkans, our Eastern 
Neighbourhood  and  Africa.  This  could  primarily  benefit  health  workers,  as  well  as 
humanitarian needs. This work needs to be undertaken on the basis of “zero waste”, requiring 
recipient countries to be sufficiently prepared. 

Empowered youth 

lack  of  opportunities, 

Investing  in  young  people  and  children  should  be  at  the  heart  of  our  cooperation. 
Empowerment, participation and involvement of young people as agents of change is key to 
achieving the priorities of the Agenda 2030. We propose to (i) support the mainstreaming of 
youth in national policies, (ii) help our partners improve their education systems governance 
and (iii) give priority to addressing structural causes of school dropouts; young people not in 
education,  employment  or  training;  skills  mismatches, 
youth 
unemployment; and brain drain. Effective coordination and partnerships across policy fields, 
including  with  youth  organisations,  are  crucial  in  terms  of  boosting  quality  employment  as 
well as education and training opportunities. We need to work together to increase people-to-
people  contacts  as  a  successful  cooperation  area  with  tangible  results  and  benefits  for  all. 
Opening up and facilitating access to EU programmes for our Southern Partners, as well as to 
relevant European networks will be crucial. In this context, the Southern Mediterranean will 
remain a priority  region  under the Erasmus+ programme. Over the 2021-2027 period under 
Erasmus+,  young people will benefit from new capacity building opportunities in the fields 
of vocational education and training, sport and digital education and youth. The EU will 
aim to better spread the benefits of Erasmus + across the region and increase the uptake of the 
Creative Europe programme to make the most of the creativity of the region`s young people. 
Child protection programmes and psychosocial support for children affected and displaced by 
conflict need to be improved with particular focus on access to education and healthcare.  

Good governance and the rule of law 

Good governance and the respect for human rights, fundamental freedoms, democratic 
institutions  and  the  rule  of  law  are  founding  principles  of  the  EU,  integral  to  our 
partnership since the Barcelona Declaration, and part of our joint commitments. Furthermore, 
good governance, the rule of law and human rights, including social and labour rights, social 
dialogue and equal access to justice, foster peace, inclusive prosperity and stability. These are 
the  foundations  for  decent  jobs,  fair  and  inclusive  growth,  and  building  long-term 
sustainability and investment.  

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In line with the “EU Action Plan on Human Rights and Democracy for 2020-2024” 12, the EU 
will step up its engagement with partners to promote the respect for human rights, the rule of 
law  and  democratic  values.  The  independence  and  accountability  of  the  judiciary  and 
prosecution are  essential  for state institutions to abide by the law, for citizens to be able to 
exercise their rights, and for the fight against human rights violations, corruption or organised 
crime.  Sustainable  structural  reforms  of  civil  and  judicial  administrations  will  reduce 
inequality  and  promote  economic  growth.  A  human  and  user-centric  approach  to  the 
digitalisation  of  systems  and  services  will  increase  state  efficiency  and  build  trust  in 
institutions. 
Democratic  principles  should  rule  the  governance  of  the  internet  and  the 
functioning of social media. The EU will continue to engage with partner countries to ensure 
a  high  level  of  protection  of  the  fundamental  rights  to  privacy  and  data  protection  and 
promote further convergence with EU and international data protection standards, facilitating 
commercial exchanges and law enforcement cooperation.  

incentive

-based approach13 set out in NDICI  for the Neighbourhood region will provide 
The 
additional financial support to those countries, which show strong ambition in implementing 
inter alia, governance and rule of law reforms. The level of support will be adjusted to each 
partner’s respect for commitments and their level of implementation as regards shared values 
and reform progress, in particular on governance and the rule of law. 

In  order  to  protect  the  EU’s  financial  interests,  it  is  imperative  that  the  Southern  partners 
ensure  that  fraud,  corruption,  money  laundering,  and  misappropriation  are  addressed  with 
effective,  dissuasive  and  proportionate  criminal  sanctions  as  well  as  through  effective  and 
efficient cooperation with the European Anti-Fraud Office. Southern partners that are parties 
to  international  agreements  on  mutual  legal  assistance  should  accept  the  European  Public 
Prosecutor’s Office (EPPO) as a competent authority of the EU Member States participating 
in the EPPO for the implementation of those agreements14.  

The EU will promote a rule of law culture through close involvement of civil society and the 
business  community.  Civil  society  organisations  and  social  partners’  organisations  remain 
key interlocutors in shaping and monitoring EU cooperation. The EU will continue to support 
concrete  initiatives  to  reinforce  civil  society  organisations  and  human  rights  defenders. 
Gender  equality  is  not  only  a  universally  recognised  human  right  but  also  an  imperative  to 
well-being, economic growth, prosperity, good governance, peace and security; it is a field in 
which we need to step up our efforts, including via mainstreaming gender across cooperation 
programmes and target actions, in line with the EU’s third gender action plan (GAP)15. We 
will  promote  initiatives  to  protect  women’s  rights  and  their  socio-economic,  civic,  and 
political participation.  

12  
13  
14         Cooperation between the EPPO and Southern partners should also be facilitated by the conclusion of 

‘EU Action Plan on Human Rights and Democracy 2020-2024’ (JOIN (2020)5). 
NDICI Regulation, Article 17. 

15 

working arrangements. 
‘EU Gender Action Plan III’ (JOIN (2020)17). 

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In line with UN Conventions on the Rights of Persons with Disabilities (UNCRPD), the EU 
will continue to work with our partners to ensure the full enjoyment of the rights of persons 
with disabilities.

Action points: Promote human rights, the rule of law, democracy and good governance, 
gender equality and equal opportunities for all and support to civil society 

  Further developing relevant legislative and institutional reforms in the human rights and 

good governance areas. 

  Promoting  modern,  efficient  and  accountable  public  institutions  and  policies,  including 
electoral observation and assistance as well as independent justice systems that deliver for 
all people, protect the rights of suspects, support victims of crime and promote improved 
detention conditions. 

  Supporting steps to combat all forms of discrimination16 
  Promoting international social and labour rights, as well as international labour standards 

as classified by the International Labour Organization (ILO) 

  Supporting  the  economic  empowerment  of  women  and  youth  (including  children), 

encouraging their active involvement in decision-making. 

  Promoting steps to eliminate violence against women and girls, including conflict-related 

sexual and gender-based violence  

  Providing capacity building for civil society organisations (CSOs), including support for 

the digital and green transition 

  Supporting the  development of modern data protection frameworks based on horizontal 
rules  enforced  by  strong  and  independent  supervisory  authorities.  Promoting  the 
ratification and implementation of the relevant international conventions 

Action  points:  Enhance  human  development,  health  and  cooperation  on  youth, 
education, skills and culture 

  Supporting health systems preparedness and response capacities to pandemics  
  Participation in EU programmes like: Erasmus+, Marie Skłodowska-Curie Actions under 
Horizon Europe, Creative Europe Programme, as well as in relevant European networks 
  Cooperation  and  experience  sharing  in  accompanying  innovation  efforts  and  support  to 

the development of smart specialisation strategies 

  Cooperating on digital education under the 2021-2027 digital education action plan  
  Cooperating on Platforms of Centres of Vocational Excellence (CoVE) including through 
the  ETF  Network  of  Excellence,  to  create  local  "skills  ecosystems"  and  enhance 
reskilling.  

  Cooperating in the anticipation of skills needs and in the design and development of skills 
and  strategies  in  a  lifelong  learning  perspective,  with  the  support  of  the  European 
Training  Foundation  for  vocational  education  and  training  (VET),  skills  and  capacity 

16  
orientation. 

Including  on  grounds  of  sex,  racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or  sexual 

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development, including skilling for green jobs and green economy  

  Supporting  integrated  approaches  and  the  capacities  of  relevant  ministries  (education, 
employment,  health,  culture  and  social  protection)  to  improve  the  access and  quality  of 
services to young people and people not in education, employment or training (NEETs) 

  Scaling up initiatives inspired by the EU Youth Guarantee scheme  

 2. Strengthen resilience, build prosperity and seize the digital transition 

The COVID-19 pandemic has affected all economies around the Mediterranean, exacerbating 
structural  economic  imbalances17  and  highlighting  the  need  for  inclusive,  resilient, 
sustainable,  and  connected  economies.  Efforts  should  leave  no  one  behind  and  enable 
countries  to  seize  trends  including  the  twin  green  and  digital  transition,  which  could  be 
accelerators of sustainable growth.  

Resilient economies 

Strengthening socio-economic resilience should remain a key cooperation priority. This 
implies that we build economic buffers against future shocks and address balance of payment 
challenges, including unsustainable debt dynamics. Macro-financial assistance, based on the 
fulfilment of specific conditions, and targeted assistance, mainly through budget support  18, 
for  the  implementation  of  public  financial  management  and  domestic  revenue  mobilisation 
strategies, will contribute to efforts to increase fiscal space19 and fiscal justice. 

A  stronger  use  of  the  euro  in  the  region  would  reinforce  links  with  the  EU  and  facilitate 
economic and financial stability. It would ensure better correlation between the region’s main 
trade  and  investment  partners  and  diversification  in  the  currency  mix  used  for  payments, 
trade and risk management. 

A renewed commitment to improving the business climate20 will be essential in order to 
build the trust of local and international private sector operators, attract investors and 
increase trade. Taking into account countries’ political economy dynamics, we should agree 
on  priority  areas  where  well-designed,  measurable,  and  implementable  reforms  should  be 
enacted.  These  priorities  should  be  agreed  in  the  Partnership  Priorities  or  equivalent  policy 
documents.  The  EU  in  cooperation  with  Member  States  will  provide  support  based  on 

17  

19  

20  

Containment measures limiting transportation and economic activity have had wide reverberations and 
widened inequalities, especially for the young and the most vulnerable, with unemployment on the rise, 
and growth, trade flows, Foreign Direct Investment (FDI), and remittances going down. The cost of the 
pandemic  on  public  finances  has  undermined  fiscal  consolidation  efforts  and  put  stress  on  social 
protection systems. 
Southern  Neighbourhood  accounts  for  close  to  25%  of  the  present  EU  budget  support  portfolio 
globally. 
Commonly  defined  as  the  budgetary  room  that  allows  a  government  to  provide  resources  for  public 
purposes without undermining fiscal sustainability. 
According to the World Bank 2019 Doing Business report, the regional average in the Middle East and 
North Africa region is 58.30 out of 100 (Rank 112). 

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partners’  commitment  to  the  coherent  and  effective  implementation  of  economic  and 
governance reforms in these areas.  

Initiatives to foster socio-economic sustainability at the local level could also contribute 
to strengthening  national systems. Our  enhanced  policy dialogue21  should also  encourage 
the deepening of public-private dialogues.  

Sustainable economies 

Economic  diversification  is  important,  especially  for  countries  that  rely  heavily  on 
sectors  prone  to  economic  shocks.  The  EU  and  its  partners  will  work  together  to  benefit 
from  the  growth  in  the  green  and  digital  economies,  in  line  with  the  objectives  set  by  the 
UfM sectoral dialogues. The blue economy’s potential22 should also be integrated coherently 
in  economic  development  planning,  alongside  the  social  economy.  Thanks  to  its  business 
models  that  put  people  and  the  planet  at  their  core,  the  social  economy  holds  potential  to 
address many societal challenges and increases our society’s resilience in times of crises. 

Furthermore, the focus on open strategic autonomy and the restructuring of global value 
chains in the wake of the pandemic has the potential to create new opportunities for further 
integrating  industrial  supply  chains  between  the  EU  and  its  Southern  Neighbours.  The 
ecosystems  approach23,  developed  in  the  Commission’s  Industrial  Strategy24,  could  also 
contribute to diversification efforts and to the development of win-win initiatives in the areas 
of  market  integration,  regulatory  convergence  and  financial  inclusion.  Industrial  clusters 
within  the  Southern  Neighbourhood  could  help  economic  development  by  connecting 
businesses  to  global  and  regional  value  chains,  reducing  the  isolation  of  SMEs,  promoting 
innovation, and generating more trade and investment. 

Support  to  the  private  sector,  especially  SMEs,  will  also  have  a  fundamental  role  to 
play25.  The  EU  and  its  partners  should  work  together  to  support  entrepreneurship  and  its 
ecosystems,  including  social  and  cooperative  entrepreneurship,  and  start-ups  from  idea 
generation to maturity.  The potential of diasporas should be  used more  actively in order to 
transfer competencies, knowhow and technologies and contribute to the creation of business 
links between the EU and Southern partners.  

The  funding  gap  for  SMEs  in  the  region  constitutes  a  real  brake  on  their  development.  On 
access-to-finance, which should also include refugees, we intend to work with IFIs to develop 
a  comprehensive  approach  to  financial  inclusion,  including  micro-finance,  and  social 

21  

22  

23  

24  
25  

Policy  dialogue  on  the  reforms  supported  through  Sector  Reform  Performance  Contracts  will  allow 
mitigating risks inherent to EU financial support and seek synergies with complementary instruments 
such as blending and investments. 
The  efforts  would  take  stock  of  the  UfM  Ministerial  declaration  on  Sustainable  Blue  Economy  (2 
February 2021) and of the work implemented in the framework of the EU Initiative for the sustainable 
development  of  the  blue  economy  in  the  Western  Mediterranean  region  (WESTMed  Initiative) 
https://ufmsecretariat.org/wp-content/uploads/2021/02/Declaration-UfM-Blue-Economy-EN-1.pdf  
These ecosystems encompass all players operating in a value chain: from the smallest start-ups to the 
largest companies, from academia to research, service providers to suppliers. 
’A New Industrial Strategy for Europe’ (COM(2020) 102). 
SMEs in the region contribute to over 2/3 of total formal employment. 

9 

 
 
                                                           
enterprise  finance,  and  on  the  use  of  new  financial  instruments,  including  venture  capital, 
business angels and impact finance.  

Research  and  innovation  has  unparalleled  benefits  for  the  achievement  of  any  forward-
looking  policy  objective.  Enhanced  research  and  innovation,  including  association  to  the 
Framework  Programme  Horizon  Europe26,  leads  to  more  resilient  and  inclusive  growth,  as 
well as the creation of sustainable employment opportunities. Successful cooperation on the 
human dimension of connectivity, including innovation and science will be stepped up with a 
view to creating a knowledge society and economy.  

Connected economies 

The  Mediterranean  region  has  the  human  capital  to  take  advantage  of  the  digital 
transformation and become a competitor in the global digital economy.  

In order to support  digital transformation efforts we propose  to  structure our work together 
around  four  pillars:  (i)  governance,  policy  and  regulatory  frameworks;  (ii)  developing 
infrastructure and supporting universal  access to enhanced, affordable and secure networks; 
(iii) digital literacy, skills, and entrepreneurship; and iv) digital services. The objective is to 
boost innovative digital transformation through encouraging the deployment of platforms and 
policies including e-government, eHealth, e-commerce, digital access to culture and cultural 
heritage, and digital skills in education, while ensuring a user-centric and the ethical use of 
technologies in line with the EU Charter of Fundamental Rights. We also propose to create 
better digital connections across the Mediterranean and contribute to economic integration. 

Trade  and  investment  are  essential  to  unlock  the  region’s  potential.  To  increase 
competitiveness, we propose to prioritise the reduction of non-tariff barriers and the reduction 
of  trading  costs.  Focus  should  be  placed  on  the  full  implementation  and  compliance  with 
existing  multilateral,  regional  and  bilateral  agreements,  in  order  to  support  trade,  build 
investors’ trust and avoid the resurgence of protectionism and trade restrictions. Building on 
the  existing  network  of  Association  Agreements  and  the  Deep  and  Comprehensive  Free 
Trade Area (DCFTA) negotiations underway with Morocco and Tunisia, we also propose to 
launch  dialogues  to  identify  partners’  interest  in  modernising  their  trade  and  investment 
relations  with  the  EU,  in  areas  including  investment  facilitation,  sustainable  development, 
services, and when relevant agriculture to better adapt them to today’s challenges.  

Taking advantage of opportunities at the sub-regional, regional and continental levels can 
also  contribute  to  economic  diversification  and  deepen  integration.  The  endorsement  by  all 
the  Southern  Mediterranean  countries  of  the  review  of  the  Pan-Euro-Mediterranean 
Convention on Rules of Origin should be promoted. Synergies with Sub-Saharan Africa will 
be  explored  actively,  especially  in  the  context  of  the  African  Continental  Free  Trade  Area 
(AfCFTA) and the creation of a Single African Air Transport Market (SAATM), with a view 
to facilitating the emergence of targeted continental value chains and supporting sustainable 
investment.  

26  

Horizon  Europe  will  continue  to  support  international  collaboration  between  researchers  and 
businesses in the EU and the rest of the world, including in the framework of science diplomacy. 

10 

 
 
                                                           
 
Transport is a key component of policies and instruments supporting the development of the 
Southern  Mediterranean,  as  highlighted  by  the  Sustainable  and  Smart  Mobility  Strategy27. 
We should seize the opportunity to link transport infrastructure through interoperability 
of  rules  and  standards.  Priority  will  be  given  to  the  swift  development  of  the  Trans-
Mediterranean  Transport  Network  and  to  the  transport  policy  reforms  objectives  identified 
jointly  under  the  Regional  Transport  Action  Plan  (RTAP)  and  supported  by  the  ongoing 
technical cooperation. Logistics, covering both regional infrastructure and links with customs 
cooperation,  will  feature  in  our  aid-for-trade  initiatives.  Space  cooperation  will  continue  to 
play a supportive role, notably through joint actions for the uptake of Galileo free and open 
services  and  through  the  extension  of  the  European  Geostationary  Navigation  Overlay 
Service (EGNOS). 

Inclusive economies 

Under  the  new  Agenda  for  the  Mediterranean  we  propose  to  work  together  to  support 
systems and recovery strategies in line with the objectives set by the UfM sectoral Dialogue 
on Employment and Labour28 that (i) foster equality of opportunities and outcomes, and (ii) 
prioritise  social  dialogue,  social  protection  and  inclusion  in  order  to  address  social  and 
territorial inequalities.  

Enormous positive returns could be brought by creating prospects for young people in their 
country  by  preventing  brain  drain  and  creating  decent  employment  for  all29,  and  by 
increasing  women’s  labour  market  participation  and  their  economic  empowerment.  This 
should be placed at the centre of the design and implementation of socio-economic reforms 
and  investment  initiatives.  Moreover,  we  should  focus  on  the  impact  of  the  informal 
economy30 on  people’s welfare  and  partners’  public  finances  and support  skills policies for 
all, also in view of supporting formalisation.  

Action points: Support to inclusive, resilient, sustainable, and connected economies 

  Co-financing sustainable investments funded by partners’ sovereign recovery funds 

in the context of the EFSD+  

  Developing  and  supporting  joint  reform  matrices  focusing  on  the  investment 

climate and the business environment 

  Supporting  initiatives  to  assist  partners  in  attracting  and  retaining  value  chain 
diversification  opportunities  in  selected  sectors,  aligned  with  good  governance 

27  
28  
29  

30  

‘Sustainable and Smart Mobility Strategy’ (COM(2020) 789). 
Ministerial Declaration of the UfM Employment and Labour Ministers, Cascais, April 2019. 
According  to  ILO  estimates,  17  million  full-time  jobs  were  lost  in  the  second  quarter  of  2020, 
compared to the final quarter of 2019. 
The ILO Recommendation n°204 concerning the transition from the informal to the formal economy 
describes  the  “informal  economy”  as  referring  to  all  economic  activities  by  workers  and  economic 
units that are – in law or in practice – not covered or insufficiently covered by formal arrangements. 

11 

 
 
                                                           
principles 

  Encouraging partners to join the Addis Tax Initiative31 
  Stepping up support to the green, blue and social economies through innovative 
financial vehicles, (including impact finance) and the development of adequate 
regulatory ecosystems. 

  Supporting the implementation of SME  policies  with  the  guiding reference  of the 
Small Business Act principles and of the Communication ‘An SME Strategy for a 
sustainable and digital Europe’ of March 202032 

  Supporting a well-functioning social dialogue, at all pertinent levels.  
  Providing  technical  support  to  promote  financial  inclusion,  especially  on  digital 

payments and digital literacy for SMEs, especially in rural areas 
  Participation in the EU Framework Programme HorizonEurope 
  Mainstreaming  support  for 

the  social  economy 

in  regional  and  bilateral 
legal  and  policy 

programmes, 
including  support  for  developing  adequate 
frameworks, strengthening institutional capacity and enabling mutual learning 
  Working to support regulatory convergence in the field of telecommunications, as 
well electronic identification and trust services, and frameworks for the protection 
of  personal  and  free  flow  of  non-personal  data  Modernising  the  trade  and 
investment  relations  with  partners  interested  in  closer  integration  with  the  EU, 
especially 
investment  facilitation,  services,  sustainable 
development, and agriculture  

in  areas  such  as 

  Supporting  the  region’s  integration  into  the  AfCFTA  in  order  to  stimulate  the 

creation of targeted continental value chains 

  Co-financing  investments  to  enhance  the  availability  of  ubiquitous  and  high 
bandwidth  telecommunication  infrastructure.  Ensuring  the  take-up  of  the  EU  5G 
toolbox principles33 to ensure network security.  

  Stepping up efforts to adopt the indicative maps of the future trans-Mediterranean 
transport network (TMN-T) that will constitute the external dimension of the trans-
European  transport  network  (TEN-T),  while  already  prioritizing  projects  on  this 
network  ,  and  contributing  to  linking  up  Sub-Sahara  Africa,  North  Africa  and 
Europe 

  Supporting  regulatory  convergence  in  all  transport  areas  in  coherence  with  the 
2021-2027  regional  transport  action  plan  through  Euro-Mediterranean  transport 
projects 

  Assisting the development of sustainable tourism 

31  

32  
33  

The  Addis  Tax  Initiative  (ATI)  is  a  multi-stakeholder  partnership  that  aims  to  enhance  domestic 
revenue mobilisation (DRM) in partner countries. 
‘An SME Strategy for a sustainable and digital Europe’ (COM(2020) 103). 
‘Secure  5G  deployment  in  the  EU  -  Implementing  the  EU  toolbox’  (COM  (2020)  50)  The 
Communication on the EU 5G toolbox commits the EU to implementing the principles of the toolbox, 
designed  to  ensure  the  secure  rollout  of  broadband  infrastructure,  not  only  in  the  EU  but  also  in  all 
external projects using EU funding, including via IFIs such as the EIB. 

12 

 
 
 
                                                           
 3. Peace and security 

The  protracted  conflicts  in  the  Mediterranean  region  constitute  a  key  obstacle  to  political 
stability and sustainable development. Joint efforts to prevent and resolve conflicts, promote 
security cooperation, mitigate the consequences of conflicts and address their root causes are 
paramount priorities in order to protect people and allow them to thrive. 

For  its  part,  the  EU  is  already  the  main  provider  of  humanitarian  and  development 
assistance.  It is  able to  deploy  a wide  range  of instruments  in a triple nexus  humanitarian-
development-peace approach. It is also a security provider by deploying Common Security 
and Defence Policy (CSDP) missions and operations, mediation and stabilisation actions, as 
well  as  restrictive  measures.  The  EU  has  built  credibility  with  a  consistent  position  on  the 
importance of respect for international law. As a trusted partner, the EU is uniquely placed to 
bring  together  conflicting  parties,  international  and  regional  partners  as  well  as  relevant 
stakeholders,  such  as  humanitarian  development  and  peacebuilding  actors  into  dialogue  on 
strategic issues, reduce tensions  and contribute  to  efforts to solve  conflicts. Many  Southern 
partners  are  calling  for  increased  EU  engagement  and  joint  efforts  to  resolve  enduring 
conflicts and  address  their  impact. Experience shows that such  a  convening  and diplomatic 
role can only be effective when the EU is united and able to act and speak in unison, at the 
bilateral  and  multilateral  levels.  The  engagement  of  EU  Member  States,  including  at  the 
highest level, is therefore key, as is an upgraded and intensified political dialogue across the 
Mediterranean to build trust, reduce tensions and help solve conflicts.  

On  this  basis,  the  EU  and  its  Member  States  and  partners  should  renew  efforts  to  reach  a 
settlement  in  the  Middle  East  Peace  Process  (MEPP).  In  this  regard,  the  EU  will  seek  to 
encourage and build upon the recent establishment of diplomatic relations between Israel and 
a number of Arab countries, with a view to enhancing the prospects for a negotiated two-state 
solution  based  on  the  internationally  agreed  parameters  as  well  as  regional  peace  and 
security. The EU, as convenor of the Syria conferences, and southern partners should step up 
efforts to resolve the devastating and now decade-long conflict in Syria in support of UN-led 
efforts. They should also continue to support Lebanon’s own efforts to resolve its domestic 
economic, social and political crisis. The EU and its partners should cooperate more closely 
in addressing peace, stability and development challenges in the Sahel region. The EU and its 
southern neighbours should also intensify their support for efforts to reach a solution to the 
issue of the Western Sahara within  the  UN-led process. Finding a sustainable and  inclusive 
political solution to the long-lasting crisis in Libya is also a priority. The EU will continue to 
be  actively  engaged  within  the  framework  of  and  in  support  of  the  UN-led  Berlin  process, 
including  at  operational  level  through  Operation  IRINI  and  other  contributions.  It  will 
explore  possible  additional  support  to  the  implementation  of  the  ceasefire,  and  support  the 
country’s constitutional and electoral process and long-term stabilisation. In seeking solutions 
to the crises in the region, the EU will continue to support United Nations (UN) efforts and 
engage with regional actors and organisations, notably the League of Arab States (LAS), the 

13 

 
 
African  Union  (AU),  and  relevant  sub-regional  groupings34.  In  the  Eastern  Mediterranean, 
the  EU  will  support  peaceful  dialogue  based  on  international  law,  including  through  a 
multilateral conference that could address issues on which multilateral solutions are needed. 
The EU and Southern Neighborhood partners should engage constructively to safeguard the 
stability and security of the wider region too. 

The  multilateral  system  is  facing  significant  challenges  at  a  time  when  most  issues  require 
multilateral  solutions.  The  EU  and  its  Southern  partners  share  a  common  interest  in 
supporting  a  revitalised  rules  based  multilateral  system  with  the  UN  at  its  core.  We 
should  work  together  and  strengthen  cooperation  in  multilateral  fora,  notably  on  peace  and 
security,  on  global  issues  and  on  strengthening  rules-based  trade,  the  rule  of  law,  human 
rights,  child  protection  and  good  governance,  as  well  as  on  the  UN  “women,  peace,  and 
security” (WPS) and the “youth, peace, and security” (YPS) agendas. 

Major  security  threats  such  as  terrorism,  hybrid  threats  as  well  as  cybercrime  and 
organised  crime,  including  the  trade  of  illegal  firearms,  drug  trafficking  and  money 
laundering are key challenges; they can only be addressed through joint efforts. 

Terrorism  and  its  financing,  radicalisation,  violent  extremism,  and  the  phenomenon  of 
Foreign  Terrorist  Fighters  occur  on  and  affect  both  shores  of  the  Mediterranean  and  are 
often interlinked. Recent attacks have underscored the need to deepen our high level strategic 
dialogues on counterterrorism. Building on existing cooperation, notably on law enforcement, 
we  need  to  step  up  our  efforts  to  prevent  radicalisation,  including  deepening  interreligious 
and  intercultural  dialogues,  and  building  capacity  to  address  violent  extremism,  online 
recruitment,  preventing  of  dissemination  of  terrorist  content  online  and  fighting  against 
illegal trafficking of cultural heritage. International cooperation remains essential and the EU 
stands  ready  to  increase  its  technical  assistance,  including  on  deficiencies  in  Anti-Money 
Laundering/Combating  the  Financing  of  Terrorism  (AML/CFT),  and  via  its  network  of 
experts deployed in key Delegations in the region.  

While  digitalisation  offers  significant  opportunities  it  also  opens  the  door  to  new 
threats, including increased vulnerability of critical infrastructure (e.g. energy, transport, 
banking  and  health).  We  need  to  work  together  to  build  cyber  resilience,  including  against 
disinformation and influence operations, share best practices, train cyber security experts and 
explore possibilities offered by innovative tools for law enforcement purposes, in full respect 
of human rights and civil liberties. We need to work together to enhance cooperation against 
cyber threats and make full use of existing international frameworks, such as the Council of 
Europe Budapest Convention, to that end. 

In  line  with  the  2021  Council  Conclusions  on  climate  and  energy  diplomacy,  the  EU  will 
strengthen  and  mainstream  work  on  the  climate,  security  and  defence  nexus,  including 

34  

In doing so, the EU can build on the EU-UN partnership in crisis management issues, its dialogue and 
cooperation  with  the  LAS,  the  UN-EU-AU  partnership,  and  cooperate  according  to  the  EU-AU 
Memorandum of Understanding on Peace, Security and Governance.  

14 

 
 
                                                           
through  increased  action  on  climate  adaptation  and  disaster  risk  reduction,  as  well  as 
collaboration with the UN and regional organisations. 

We  also  propose  to  use  the  tools  identified  in  the  EU  Security  Union  Strategy35  to 
strengthen  the  capacity  of,  and  cooperation  between,  law  enforcement,  judicial  and  civil 
authorities.  In  addition,  cooperation  on  chemical,  biological,  radiological  and  nuclear 
(CBRN) risk mitigation as well as on civil protection and disaster risk management should be 
further enhanced.  

Cooperation  on  law  enforcement  and  judicial  cooperation  should  be  strengthened 
between the EU and partner countries, also with the assistance of relevant EU Agencies 
(Europol,  Cepol,  Frontex,  the  European  Monitoring  Centre  for  Drugs  and  Drug 
Addiction, Eurojust), including by negotiating cooperation agreements between the EU and 
Southern Neighbourhood countries. To this end, the EU shall engage with Southern partners 
in order to ensure that their law enforcement and judicial systems meet high standards of data 
protection and respect human rights. 

Improved  judicial  cooperation  on  civil  matters  is  needed  to  improve  contract  enforcement 
and  address  cross-border  child  abductions,  child  protection  and  maintenance  obligations. 
Accession to, and correct implementation of, the Hague Conventions on Private International 
Law36 should be a priority in the region. 

The EU proposes to develop further its partnership on security matters with its neighbouring 
countries, as well as enhancing operational cooperation, including for maritime security and 
coastguard  cooperation.  Such  partnerships  should  be  tailor-made,  correspond  to  respective 
needs  and  enjoy  high-level  political  support  in  order  to  guarantee  concrete  results. 
Cooperation with regional and international organisations is also vital, including with NATO 
in the framework of the Warsaw and Brussels Joint Declarations.37 

Action points: Cooperation on peace, conflict resolution and prevention  

  Upgrading and intensifying the  political dialogue  between  the EU  and its Member 
States  and  Southern  Partners  and  engaging  the  EU’s  strategic  partners  in  order  to 
enhance joint efforts  to  solve  conflicts  and reduce tensions  in  the region, using all 
tools in an integrated manner for regional stability and security.  
Investing  in  prevention  on  the  fight  against  radicalisation,  conflict  resolution  and 
stabilisation  through  an  integrated  approach  to  conflict  and  crises,  acting  at  all 
stages of the conflict cycle 

 

  Securing resilience by better linking humanitarian, development, peace and security 

efforts 

  Where  mutually  beneficial,  participation  in  CSDP  missions  and  operations  using 

instruments such as Framework Participation Agreements 

35  
36  
37  

‘EU Security Union Strategy’ (COM(2020) 605). 
https://www.hcch.net/en/home/  
https://www.nato.int/cps/en/natohq/official_texts_133163.htm 
https://www.nato.int/cps/en/natohq/official_texts_156626.htm  

15 

 
 
                                                           
  Strengthening the role of women and young people in peacebuilding in line with the 
EU’s  political  commitment  for  the  implementation  of  the  Women  Peace  and 
Security agenda at regional and international levels  

Action points: Security cooperation  

  Stepping  up  counter  terrorism  and  security  dialogues,  including  cooperation  on 
AML/CFT  and  encouraging  the  ratification  and  implementation  of  the  relevant 
international conventions 

  Strengthening  cooperation  on  counter-terrorism,  prevention  and  fight  against 

radicalisation, fight against organised crime, illicit firearms and drugs. 

  Swift  implementation  of  “CT  Inflow”,  Euromed  police,  the  “EU4  Monitoring 

Drugs”, the EuroMed Justice and the CyberSouth programmes 

  Further  developing  the  EU  CBRN  Risk  Mitigation  centres  of  excellence,  which 
proved  to  be  an  important  asset  in  dealing  with  COVID-19  pandemic  as  well  as 
other actions to address security threats 

  Enhancing  work  on  climate  resilience  and  adaptation,  investing  in  preventive 
measures  and  reinforcing  cooperation  on  civil  protection  and  disaster  risk 
management building on programmes such as PPRD South38. 

  Engaging  with partner countries to strengthen judicial and police  cooperation with 
the EU, including through the negotiation of cooperation agreements with Europol 
and Eurojust. 
Improving judicial cooperation in civil matters by fostering accession to and correct 
implementation  of  the  relevant  Conventions  developed  by  The  Hague  Conference 
on Private International Law. 

 

4.  Migration and mobility  

Migration  is  a  global  phenomenon  that  requires  joint  responses,  solidarity  and  global 
responsibility sharing. No country can effectively manage migration, including addressing 
the  challenges  of  irregular  migration,  on  its  own.  The  EU’s  New  Pact  on  Migration  and 
Asylum aims at a step-change in our engagement with our international partners. It is centred 
around  comprehensive,  tailor-made,  balanced  and  mutually  beneficial  partnerships.  The 
ultimate  aim  is  to  ensure  that  migration  only  takes  place  in  a  safe  and  regular  manner, 
preventing  dangerous  journeys  and  avoiding  loss  of  life,  by  fighting  smuggling  and 
strengthening cooperation on migration governance, while providing international protection 
to those who need it. Countries should be enabled to offer a stable and predictable social and 
economic  future  providing  genuine  opportunities,  especially  to  their  youth.  The  EU  will 
actively  work  to  address  the  root  causes  of  irregular  migration  and  forced  displacement, 
through conflict resolution and by addressing the socio-economic challenges exacerbated by 
COVID-19. 

38  

PPRD Sud III – ‘Prévention, Préparation et Réponse aux catastrophes naturelles et d’origine humaine 
dans les pays partenaires du Moyen-Orient et d’Afrique du Nord’. 

16 

 
 
  
 
                                                           
The  New  Pact  on  Migration  and  Asylum  provides  a  strengthened  basis  to  achieve  a 
sustainable and long-term response in terms of migration and asylum management. 

Our  enhanced  partnerships  on  migration  encompass  all  the  different  aspects  of 
migration and asylum, taking into account the EU and partner countries’ interests. At 
the same time these will be embedded in the different strands of our cooperation – political, 
security and economic. 

Every country faces specific situations, and its own opportunities. There is no “one size fits 
all”, tailor made solutions  are needed. This  is  and will continue to be reflected in  the EU’s 
comprehensive partnerships  with  each country, in  line with  the New Pact  of Migration and 
Asylum. 

The EU will continue to protect those in need and support host countries, recognising that 
several southern Mediterranean countries host substantial numbers of refugees and migrants. 

Irregular  migration  brings  challenges  for  both  the  region  and  for  the  EU,  also  by  further 
increasing the economic power and destabilising influence of criminal networks. The solution 
resides  in  addressing  migrant  smuggling  jointly.  In  this  vein,  the  EU  and  partner  countries 
will  significantly  step  up  common  efforts  to  combat  trafficking  and  fight  the  criminal 
networks  behind  migrant  smuggling  and  trafficking  in  human  beings39.  Strengthening 
migration and asylum governance including border management capacity is a key element. 
The EU is ready to support according to partners’ needs.  

Stepping  up  cooperation  on  return,  readmission  and  sustainable  reintegration  and  making 
returns  more  effective  are  important  elements  of  these  partnerships.  To  support  these 
partnerships,  the  EU  will  mobilise  relevant  EU  policies,  tools  and  instruments  as  part  of  a 
comprehensive  approach.  Given  the  importance  of  voluntary  returns,  the  Commission  will 
adopt a Voluntary Return and Reintegration Strategy and will set out new approaches to the 
design,  promotion,  and  implementation  of  assisted  voluntary  return  and  reintegration 
schemes. 

The EU is also committed to support legal migration and mobility with our partners, in line 
with its and Member States’ competences. Resettlement is important to provide protection to 
the  most  vulnerable  refugees.  Talent  Partnerships  to  promote  legal  migration  and  mobility 
with  relevant  Southern  Neighbourhood  partners  will  be  integral  parts  of  our  cooperation, 
mindful of the risks of brain drain. 

Cooperation at the regional and multilateral level should be explored further, including 
through triangular and south-south cooperation, since some southern Mediterranean partners 
are origin, transit and destination countries. At the regional level, cooperation under the Joint 
Valletta  Action  Plan40,  and  the  Khartoum41  and  Rabat42  Processes  will  be  advanced, 

39  

40  

At the Conference on Anti-Smuggling of 13 July 2020 hosted by Italy and with the participation of EU 
and key African partners, partners committed to fight smuggling jointly. 
https://www.jvapfollowup.org/jvap/ 

17 

 
 
                                                           
including a “whole of route” approach. In this context, trilateral cooperation with the UN as 
well as with regional actors should be strengthened, including by building on the successful 
experience of the trilateral AU-EU-UN Task Force in Libya. 

The  Commission  and  the  High  Representative  propose  to  use  all  the  tools  at  EU 
disposal,  including  EU  Agencies,  the  NDICI43  and  relevant  internal  instruments  to  bring 
operational and financial support in the area of migration and mobility.  

Action points: Enhance cooperation on migration and mobility on the basis of a tailor 
made comprehensive, balanced and mutually beneficial partnerships  

•  Supporting  partners’  capacity  for  effective  migration  and  asylum  governance, 
including  border  management,  all  aspects  of  asylum  and  migration  systems  and 
readmission capabilities. 

•  Targeted  assistance  to  create  socio-economic  opportunities  for  migrants,  forcibly 
displaced  persons  and  host  communities,  including  in  the  context  of  the  COVID-19 
recovery, with particular attention to marginalised regions. 

•  Stepping-up  cooperation  on  effective  return  and  readmission;  Supporting  assisted 
voluntary  return  and  sustainable  reintegration  from  the  EU  but  also  between 
individual partner countries. 

•  Developing  legal  pathways  to  Europe  via  continued  efforts  on  resettlements  and  in 
labour mobility schemes, in particular the swift launch of Talent Partnerships,  while 
fully respecting EU and Member States’ competences. 

•  Exploring  triangular  and  South-South  cooperation  frameworks  and  enhancing 

cooperation with regional and international actors.  

5.  Green transition: climate change resilience, energy and environment 

The  Southern  Neighbourhood  is  one  of  the  main  hotspots  in  the  world  as  regards  climate 
change and environmental degradation. At the same time, the Mediterranean region is home 
to some of the world’s  best solar  and  wind resources, presenting  unparalleled opportunities 
for clean energy cooperation, with hydrogen production as a new strategic priority. The full 
implementation of the 2030 Agenda for Sustainable Development, the Paris Agreement and 
internationally  agreed  biodiversity  goals  will  be  crucial  to  help  better  equip  the  region  for 
future  systemic  shocks.  The  European  Green  Deal  represents  a  unique  opportunity  for 
cooperation on strategic priorities. Comprehensively strengthening environment, energy, and 
climate change resilience can help mitigate risks to human lives and livelihoods and promote 
sustainable development, job creation and transition to high value sectors.  

Green growth and climate action  

41  
42  
43  

https://www.khartoumprocess.net/ 
https://www.rabat-process.org/fr/ 
The NDICI includes a 10% target for migration-related actions. 

18 

 
 
  
  
                                                                                                                                                                                    
The EU and its partners will work together in order to increase their climate ambition, and 
to  streamline  targets,  shifting  towards  green  growth  and  developing  or  strengthening 
coherent,  achievable,  and  measurable  climate  action  measures  in  line  with  partners’ 
national  determined  contributions  (NDCs)  under  the  Paris  Agreement,  National  Adaptation 
Plans (NAPs) and the external dimension of the European Green Deal. Focus will be placed 
on  (i)  climate  and  environmental  governance,  its  link  with  public  finances  and  fiscal 
initiatives,  and  on  the  monitoring  of  targets;  (ii)  supporting  carbon  pricing  initiatives;  (iii) 
administrative capacity and targeted technical assistance to implement and enforce legislation 
both at the central and local levels; and (iv) education and awareness raising within both the 
private  sector  and  the  population  at  large  as  agents  of  change.  The  Copernicus  Earth 
Observation  Programme  services  and  data  support  green  growth  policies  and  climate 
monitoring.  The  cooperation  could  also  promote  the  implementation  of  sustainable  urban 
mobility  plans  in  the  region’s  cities,  developing  green  multimodal  transport  solutions.  This 
effort will require coordinated and enhanced policy dialogue44 with all involved stakeholders, 
including the private sector and civil society, including at the local level. Increasing climate 
change adaptation capacities and disaster risk reduction is a priority in the region. Focus will 
be placed on (i) supporting climate change resilience, (ii) climate-proofing investments, (iii) 
investing in preventive measures, (iv) nature-based solutions and risk management capacities. 

A strategic engagement with IFIs and the private sector will support the development of a 
financial  system  that  supports  sustainable  growth.  In  addition,  the  participation  of  public 
authorities  responsible  for  developing  sustainable  finance  policies  in  partner  countries 
notably through international fora such as the International Platform on Sustainable Finance 
(IPSF)45 will  be encouraged. The  EU  and the other  IPSF members 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 (including green bonds).  

Energy transition and energy security 

Europe  and  the  Mediterranean  region  have  interdependent,  complementary  and  converging 
energy interests based on the priorities of the green and fair transition and energy security.  

Future cooperation will have to be adapted to partners’ diverse endowment and needs and 
be focused on selected priority objectives: (i) massive deployment of renewable energy and 
clean  hydrogen  production,  contributing  to  the  aspiration  to  have  at  least  40  Gigawatts  of 
electrolyser  capacity  in  the  EU  Neighbourhood  by  2030  ;  (ii)  a  stronger  interconnection  of 
electricity systems46; (iii) energy efficiency efforts and measures, with a focus on buildings 
and  appliances  ;  (iv)  policies  to  address  fugitive  methane  emissions  from  fossil  fuel 
production, transport and use, in line with the framework set in the EU methane strategy.  

44  

45  
46  

For  example,  the  UfM  Regional  Platform  in  Research  and  Innovation  that  identified  climate  change 
and renewable energies as main priorities for cooperation in the coming years. 
International platform on sustainable finance. 
The  Mediterranean  Master  Plan  2020  of  Electricity  Interconnections  identifies  15  potential 
interconnection projects and assesses their costs and benefits. 

19 

 
 
                                                           
Resource efficiency, fight against pollution and biodiversity 

Considering  urbanisation  trends,  the  loss  of  biodiversity,  including  deforestation  and  land 
degradation,  habitat  loss  and  fragmentation,  increasing  marine  and  land  pollution,  and  the 
impact  of  climate  change  on  resources,  especially  access  to  water,  we  propose  to  focus  on 
measures  to  protect  and  restore  biodiversity,  both  marine  and  terrestrial,  animal  and 
vegetal,  as  well  as  on  sustainable  water  management,  including  wastewater  treatment, 
water re-use and efficient use of water management.  

Levels  of  air  pollution  are  a  widespread  issue  across  the  region,  in  particular  in  densely 
urbanized coastal areas, with concentrations of air emissions from industry and transport, and 
their deposition into the sea. This has significant impacts on health, the environment and sea 
related economic activities, including fisheries and tourism.  

Support  measures  will  include  awareness  raising  and  education  activities  to  prevent 
unregulated  waste  disposal,  promote  sustainable  consumption  and  production, 
the 
development  of  modern  facilities  that  would  ensure  recycling  and  safe  waste  disposal,  and 
reform of the legislative, fiscal and institutional frameworks to reduce the different types of 
pollution, and sustainable land use planning and management. The EU will continue to work 
with  countries  in  the  region,  in  the  context  of  the  Barcelona  Convention,  to  take  action  to 
reduce  emission  levels  from  maritime  transport  in  particular,  with  the  view  to  declare  the 
Mediterranean Sea as an Emission Control Area. 

Sustainable food systems 

Cooperation  will  be  strengthened  in  order  to  transition  to  sustainable  food  systems, 
including  sustainable  management  of  agriculture,  fisheries,  and  preservation  of  natural 
production factors to strengthen food security. This may include providing technical expertise 
in  formulating  agricultural  and  blue  economy  related  policies,  supporting  agro-ecological 
practices,  and  promoting  smart  agriculture  and  aquaculture  concepts.  Support  to  regional 
integration  of  markets  under  the  AfCFTA  and  the  General  Fisheries  Commission  for  the 
Mediterranean  (GFCM)  framework47  on  fishery  and  aquaculture  should  be  enhanced, 
including the development of foods value chains at the continental level.  

Action points: Green transition : climate resilience, environment, and energy 

  Joint efforts to streamline targets, shifting towards green growth and developing or 
strengthening  coherent,  achievable,  and  measurable  climate  action  measures 
identified under the NDCs and NAPs at both regional and bilateral levels 

  Reinforcing strategic engagement to support the development of a financial system 
that  supports  sustainable  growth  and  climate  resilience  investments,  by  way  of  a 
regional initiative on sustainable finance in collaboration with IFIs 

  Reinforcing bilateral engagement and providing targeted assistance to support large-

47  

http://www.fao.org/gfcm/about/en/ 

20 

 
 
 
 
                                                           
scale  investments  in  renewables  and  clean  hydrogen  production  for  both  domestic 
consumption and export. Supporting, in line with the objectives of the Farm to Fork 
Strategy48  the  design,  investment  in,  and  implementation  of  sustainable  food 
systems, from production to consumption, paying particular attention to food safety, 
plant and animal health and welfare, as well as with a view to ensure regional food 
security 

  Promoting initiatives on waste management, including food waste and marine litter 
  Supporting  biodiversity  protection  and  restoration,  including  creations  of  effective 

and well-managed networks of coastal and marine protected areas 

  Supporting  efforts  to  reduce  emissions,  in  particular  to  marine  and  coastal 

environment, water and air. 

  Promoting  the  sustainable  use  of  natural  resources  as  a  basis  for  achieving  the 

transition to a circular economy 

Implementation 

The  EU  will  use  all  its  instruments  to  ensure  the  efficient,  effective,  swift  and  tailor-
made  rollout  of  the  new  Agenda  for  the  Mediterranean.  It  will  take  into  account  the 
region’s  diversity,  interests,  and  needs.  Policy  dialogue  with  all  relevant  stakeholders 
will remain the cornerstone of the cooperation. Special attention will be placed on the local 
level  to  ensure  that  the  impact  of  cooperation  is  distributed  geographically  in  an  adequate 
manner.  

Continuous  and  forward-looking  dialogue  between  the  EU  and  its  partners  will  ensure 
mutually  beneficial  partnership  and  co-ownership,  taking  into  account  the  social 
dynamics  and  impact  of  challenges  and  reforms.  We  will  strive  for  tailor-made,  integrated 
multi-sectoral  cooperation,  trade  and  investment  packages  and  platforms  that  constitute  a 
credible response to the needs of partners and of the EU. The level of EU financial support 
will be proportionate to each partners’ ambitions and commitment to shared values, the 
agenda of reforms, including on governance, and their implementation.  

A  significantly  strengthened  political  dialogue  will  contribute  to  building  a  shared 
understanding with Southern Neighbourhood partners. In this regard, we propose regular 
meetings  at  the  level  of  foreign  and  sectoral  ministers  as  well  as  senior  officials,  whereas 
meetings  of  Heads  of  State  and  Government  could  be  convened  when  necessary. 
Strengthened  coordination  will  translate  into  a  better  alignment  of  positions  at  the  bilateral 
and multilateral levels. 

Efforts will continue to enhance  regional, sub-regional and inter-regional cooperation. 
The role of the Union for the Mediterranean remains indispensable. In addition, sub-regional 
cooperation adapted to the specificities of the different sub-regions of the Mediterranean and 
beyond. Moreover, effective approaches will require broader co-operation with neighbouring 

48  

‘A Farm to Fork Strategy’ (COM(2020) 381). 

21 

 
 
 
                                                           
countries  and  regions.  The  inter-regional  dimension  is  therefore  important.  We  need  to 
increase cooperation  between  North  and Sub-Saharan  Africa, also as triangular cooperation 
with the EU.  There  is also  a need to strengthen  coherence between what the EU does  with 
Northern  African  partners  and  the  rest  of  the  African  continent.  Similarly,  inter-regional 
cooperation  with  the  Gulf  and  Red  Sea  regions  is  important.  Increased  cooperation  with 
regional actors and organizations, notably the League of Arab States, the African Union and 
relevant sub regional groupings will be key. Pragmatic initiatives based on variable geometry 
should be explored to support those willing to advance further in the cooperation on common 
Mediterranean  goods.  We  will  scale  up  our  climate  and  energy  diplomacy  efforts  both  at 
bilateral and regional level. 

The  NDICI  and  the  EFSD+  will  be  the  main  instruments  for  EU  cooperation  with 
partner countries. All actions will follow the “policy first” principle. The EU will promote 
Joint  Programming  and  Team  Europe  initiatives  on  the  ground,  building  on  the  successful 
experience during the  global response to the COVID-19 pandemic. The  EU will encourage 
EU  Member  States,  European  development  agencies  and  financing  institutions,  as  well  as 
other donors, to jointly develop together with partner countries coherent and complementary 
approaches  for  sectoral  priorities.  The  future  European  Financial  Architecture  for 
Development will also contribute to maximise EU efforts. 

The  new  Agenda  for  the  Mediterranean  will  inform  the  preparation  of  bilateral  political 
frameworks  jointly  agreed  with  the  partners49  and  the  multi-annual  programming  under  the 
NDICI for the period 2021-2027, building on consultations with partner countries and other 
relevant  stakeholders.  Lessons  learnt  from  previous  programmes  under  the  Neighbourhood 
policy will help target future actions. EU Delegations will be instrumental in facilitating this 
process. 

The  European  Fund  for  Sustainable  Development  Plus  (EFSD+)  under  the  NDICI,  and  its 
innovative  financial  architecture  will  allow  crowding  in  private  sector  investment,  in 
cooperation  with 
the  European  Bank  for 
Reconstruction  and  Development  (EBRD),  Member  State  development  banks,  and 
international financial institutions.  

the  European  Investment  Bank  (EIB), 

Moreover, further integration and exchange between the two shores of the Mediterranean will 
be achieved by further encouraging and facilitating partners’ participation in EU programmes 
in the period 2021-2027. 

The  EU  will  also  strengthen  its  strategic  communications  to  raise  awareness  of  the  actions 
taken  under  the  new  Agenda  for  the  Mediterranean.  The  Commission  and  the  High 
Representative will work together with our partners to bring about more robust and enabling 
frameworks  for  freedom  of  expression,  and  support  healthy  information  environments. 
Implementing  measures  to  counter  disinformation  and  misinformation  will  remain  a  key 

49  

Joint Documents, Partnership priorities or equivalent are documents establishing jointly agreed political 
and economic reform agendas and related implementing tools. Joint Documents will continue to frame 
external assistance under the 2021-2027 EU Multiannual Financial Framework. 

22 

 
 
                                                           
aspect of this approach50. The EU and partners should also ensure adequate visibility of our 
political engagement and cooperation actions on the ground, including through outreach and 
public diplomacy initiatives. 

Finally, this Agenda for the Mediterranean will guide our policy towards the region and 
the EU will assess progress regularly. 

50  

Building on the joint action plan against disinformation (5 December 2018), the European democracy 
action  plan  (COM/2020/790)  and  the  experience  from  the  COVID‑ 19  pandemic,  EU  strategic 
communications efforts will be rooted in European values and principles. 

23