JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on strengthening the EU’s contribution to rules-based multilateralism
Date: 2021-02-17
Institutions: European Commission, Secretariat-General
Subjects: geopolitics, international cooperation, international law, international organisation, international security, multilateral relations, the EU's international role

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 17.2.2021  JOIN(2021) 3 final  JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on strengthening the EU’s contribution to rules-based multilateralism  
 
 
I. 

Introduction  

Our  world  is  in  a  period  of  transition,  marked  by  major  geopolitical  and  economic  power 
shifts.  Emerging  players  are  creating  new  dynamics.  Relations  between  major  powers  are 
increasingly confrontational and unilateralist. Competing visions and agendas on the global 
order  are  at  play,  which  challenge  established  multilateral  rules  and  organisations.  Yet 
growing  global  challenges  call  for  more  multilateral  governance  and  rules-based 
international cooperation. 

Current geopolitical rivalries have a negative impact on efforts to promote peace and prevent 
conflict: they hamper humanitarian responses, undermine trust and complicate the provision 
of  global  public  goods.  Basic  principles  of  international  law,  human  rights,  democracy  and 
the rule of law are being challenged. Existing institutions upholding such values are all too 
often  bypassed  or  misused  for  narrow  national  or  ideological  interests.  Strong  non-state 
actors, including digital  platforms and multinationals,  have become shapers of international 
norms outside established channels. Citizens feel increasingly disconnected from all levels of 
governance. The result is a more unpredictable and unequal world.  

The  COVID-19  crisis  nevertheless  exemplifies  the  need  for  multilateral  solutions:  a  major 
global  threat,  it  has  created  much-needed  momentum  for  a  coordinated,  global  crisis 
response. Throughout 2020, international fora and organisations led the global response and 
delivered tangible results, such as the Access to COVID-19 Tools Accelerator (ACT-A) and 
its COVAX facility or the G20 Action Plan to respond to the pandemic1.  

By its very nature, multilateralism is subject to continuous adaptation. It is a complex system, 
but  delivers  tangible  benefits  for  all.  Important  and  lasting  achievements  include  the 
international human rights and international humanitarian law instruments, the 2030 Agenda 
for  Sustainable  Development,  the  Paris  Agreement  on  Climate  Change,  the  Treaty  on  the 
Non-proliferation  of  Nuclear  Weapons,  and  the  rules  that  govern  international  trade  and 
investment.  The  decision  of  the  new  US  administration  to  rejoin  the  Paris  Agreement  and 
remain  in  the  World  Health  Organisation  are  welcome  steps  that  will  provide  positive 
momentum  overall  for  the  achievement  of  ambitious  multilateral  objectives  over  the  next 
years. 

This multipolar world is a major and urgent challenge that the EU can face successfully, on 
two conditions. The EU needs to become more assertive in the light of the more transactional 
nature of the global system and build and reinforce coalitions of like-minded partners on key 
priorities.  Multilateralism  has  been  and  will  remain  the  cardinal  principle  of  the  EU  as  the 
most effective means to govern global relations in a mutually beneficial way. But we cannot 
be multilateralists alone nor only for the sake of it. Multilateralism must be effective, fair and 
deliver results that serve both EU and global interests and values. This means the EU must be 
firm on its principles, and agile in its conduct.  

This Joint Communication therefore: 

  defines more clearly what the EU wants for and from the multilateral system,   
  sets  out  how  the  EU  can  achieve  what  it  wants  by  reinforcing  the  system  and  its 

ability to deliver, and  

1 Out of the €15.9 billion raised btw 4 and 28  May 2020 in the EU-led Coronavirus Global Response, €11.9 billion were 
pledged by Member States, the Commission and the European Investment Bank. The EU budged has contributed with €1.4 
billion to the (ACT) Accelerator. The EU and its Member States contributed €853million to COVAX.  

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  shows what the EU can do to leverage its strength more effectively.  

What  the  EU  wants:  The  EU  wants  to  promote  global  peace  and  security  and  defend  the 
fundamental  rights,  universal  values  and  international  law  that  form  the  bedrock  of 
cooperative  relations  between  countries  and  peoples.  It  will  remain  at  the  forefront  of  the 
response to the existential climate and biodiversity crises that threaten humanity, and this too 
will  guide  our  approach  to  the  multilateral  system.  The  EU  intends  to  push  forward 
cooperative  solutions  to  “build  back  better”  –  strengthening  the  global  recovery,  tackling 
inequalities,  promoting  sustainable  development  and  public  health,  the  digital  and  green 
transitions  including  clean  energy  transition,  defending  human  rights  and  the  rule  of  law. 
These efforts go hand-in-hand with a more interests-based approach.  

How the EU can achieve it: the multilateral order needs to be reinvigorated to make it fit 
for purpose so that it can cope with the global challenges and geopolitics of the 21st century. 
To  remain  legitimate,  it  must  respond  to  the  growing  demands  of  citizens  in  terms  of 
transparency, quality, inclusiveness and delivery. The EU and its Member States are and will 
remain  firm  supporters  of  the  rules-based  international  order  with  the  UN  at  its  core. 
However, the world no longer resembles what it was when the UN was set up 75 years ago. 
The process initiated at the “UN at 75” Summit in September 20202 provides an opportunity 
to  rejuvenate  multilateralism  so  that  it  delivers  more  effectively  and  inclusively.  The  EU 
should engage actively in support of the UN Secretary-General’s process of reflection in this 
regard (“Our Common Agenda”). The EU should also promote the ambitious modernisation 
of key institutions such as the WTO and WHO and spearhead the development of new global 
norms, international standards and cooperation frameworks in areas such as digital, including 
Artificial Intelligence and other new technologies. 

What  the EU can do:  The EU must develop a  more stringent  and strategic approach to  its 
multilateral engagement, and contribute to an effective reform of the multilateral institutions. 
This requires more efficient coordination mechanisms between the EU and its Member States 
around joint priorities, and a greater willingness to leverage the EU’s collective strength to 
project its values and priorities abroad. The EU will leverage more effectively its regulatory 
power and unique single market and social market economy, its position as the world's first 
trading  superpower  and  the  relevance  of  the  Euro3.  The  EU  will  step  up  its  leadership  and 
make better use of its ability to act as a convenor, honest broker and bridge-builder. The EU’s 
democratic  and  regulatory  strengths  are  assets  to  help  build  a  better  world,  while  its 
credibility  as  a  peace  actor  and  its  security  and  defence  structures  can  help  support 
multilateral efforts to keep, sustain and build peace.  

Successful  global  engagement  also  means  that  the  EU  must  deepen  partnerships  and 
alliances  with  third  countries,  multilateral  and  regional  organisations,  as  well  as  other 
partners, especially those with whom we share democratic values and priorities. But the EU 
will  also  seek  common  ground  on  an  issue-by-issue  basis  with  others  –  not  least  on  global 
public goods.  

Increasing the EU’s capacity to be a global actor also means ensuring consistency between 
the  EU’s  external  actions  and  its  internal  policies.  A  united  and  coherent  EU  voice  in 
global fora is essential in order to maximise our role and influence. The EU must ‘deliver as 
one’ to ‘succeed as one’. 

2  Declaration  on  the  commemoration  of  the  75th  anniversary  of  the  United  Nations:  resolution  adopted  by  the  General 
Assembly, A/RES/75/1 
3 COM(2021) 32 “The European economic and financial system: fostering openness, strength and resilience” 

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II. 

A multilateral system that is “fit for purpose”  

The EU’s strategic interests in the multilateral system are twofold. On the one hand, it has to 
sharpen  the  priorities  that  it  wants  to  pursue  within  the  multilateral  system.  On  the  other 
hand, a well-functioning multilateral system is a strategic interest for the EU in its own right.    

1. 

Focusing the EU’s multilateral agenda (“what the EU wants”) 

The EU must define clearer strategic priorities and objectives for its multilateral action. This 
is  perfectly  compatible  with  a  multilateralist  stance,  as  the  principles  that  underlie  the 
European Union are the same as those of the United Nations. The EU stands strongly behind 
the  international  rule  of  law  and  universal  agendas,  as  set  out  in  the  United  Nations  and 
beyond,  such  as  human  rights  and  gender  equality,  the  2030  Agenda  and  its  Sustainable 
Development Goals, the global biodiversity framework and the Paris Agreement on Climate 
Change. They continue to guide the EU’s actions, domestically and externally. 

(i)  Making the world safer 

In  a  world  of  increasing  geopolitical  tensions,  conflicts  and  threats  to  international  and 
regional  stability,  the  EU  has  a  deep  interest  in  enhancing  its  efforts  to  prevent  conflict, 
promote  peace  and  security,  uphold  fundamental  values  and  strengthen  its  capacity  to  act, 
together with other partners. The EU relies heavily on global stability and good governance, 
sustainable development, unhindered trade flows and supply chains, as well as the free flow 
of ideas and knowledge. 

With its political leverage, policies and financial instruments, including in the framework of 
the  Common  Foreign  and  Security  Policy,  the  EU  contributes  to  the  maintenance  of 
international  peace  and  security  in  accordance  with  the  UN  Charter.  In  line  with  UN 
efforts,  the  EU  follows  an  integrated  approach  to  conflicts  and  crisis,  from  conflict 
prevention to crisis management and peacebuilding4.  

The EU also cooperates closely with the UN and other partners on tackling global terrorism5, 
violent  extremism,  transnational  organised  crime  and  cybercrime6,  money  laundering  and 
terrorism financing. In this context the EU should therefore use all its relevant tools identified 
in the EU Security Union Strategy.   

In  order  to  preserve  peace  and  stability  as  well  the  multilateral  order  in  the  region,  the  EU 
should further strengthen its partnerships with the Organisation for Security and Cooperation 
in  Europe,  the  Council  of  Europe  and  the  North  Atlantic  Treaty  Organization  (NATO),  as 
well as other regional organisations such as the African Union (AU), the Community of Latin 
American and Caribbean States (CELAC) and the Association of South East Asian Nations 
(ASEAN).  

4  Out  of  17  EU  Common  Security  and  Defence  Policy  (CSDP)  missions  and  operations,  13  are  deployed  alongside  UN 
missions in the Sahel, the Central African Republic, Libya, and the Western Balkans, supporting or directly contributing to 
the implementation of the UN mandates. 
5 COM(2020) 795 final, ‘A Counter-Terrorism Agenda for the EU: Anticipate, Prevent, Protect, Respond’. 
6 EU Security Union Strategy COM (2020)605 final, 24.07.2020. 

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At the same time, the EU should be a driving force behind UN actions in response to conflicts 
that cause harm to civilians and threaten global security and stability. When defining the next 
set  of  EU-UN  priorities  on  peace  operations  and  crisis  management  for  2022-2024, 
addressing  the  consequences  of  the  changing  global  context  and  enhancing  cooperation  on 
threats such as climate change and environmental degradation will be a key focus for the EU. 

It is fundamental for all members of the international community to uphold and improve the 
implementation  of  international  norms  on  arms  control,  disarmament,  and  non-
proliferation,  while  ensuring  that  they  keep  up  with  new  technological  developments.  To 
that end, the EU will play an active role in defending its security interests which are grounded 
in multilateral arrangements. It will consolidate the achievements of the Joint Comprehensive 
Plan of Action with Iran as a key pillar of the global non-proliferation architecture7. 

The  EU  is  a  natural  ally  of  the  UN  and  regional  organisations  (e.g.  Council  of  Europe, 
Organisation  for  Security  and  Cooperation  in  Europe,)  in  supporting  democracy  and 
promoting and protecting human rights, fundamental freedoms8 and the respect for human 
dignity  including  gender  equality9,  the  rights  of  the  child10,  and  LGBTIQ  rights11.  The  EU 
will defend and promote those principles, and push back against attempts to undermine them. 
It  will  stand  up  against  any  attempt  to  backtrack  on  the  principle  that  all  human  rights  are 
universal,  indivisible,  interdependent  and  interrelated.  The  EU  will  team  up  with  all  those 
who support democracy, access to justice and accountable and inclusive institutions. 

The  EU’s  humanitarian  policy  and  action  is  premised  on  the  UN’s  central  coordinating 
role in emergencies. The Humanitarian-Development-Peace nexus is a key concept for the 
EU,  in  line  with  its  position  as  a  leading  development  and  humanitarian  donor  and  policy 
maker12.  The  EU  will  remain  a  vocal  defender  of  International  Humanitarian  Law, 
unimpeded access to people in need, and the principled delivery of humanitarian aid.  

(ii) 

Building back better  

The COVID-19 pandemic shows how intertwined global challenges are. The global health 
system  is  only  as  strong  as  its  weakest  link.  Tackling  global  poverty,  inequality,  climate 
change and  environmental  degradation is  an integral  part of avoiding future pandemics and 
ensuring better preparedness.  

As the world emerges from this crisis, the EU emphasises the need to build back better and 
consistently  promotes  multilateral  solutions  that  focus  on  building  sustainable  and  resilient 
systems  –  be  it  on  health,  transport  services  or  global  supply  chains,  access  to  affordable 
quality  education  –  but  also  deliver  green  and  digital  investment  frameworks  and  ensure 
sustainable  long-term  development  financing.  Tackling  global  poverty,  inequality  and 
supporting human development are also an integral part of ensuring better resilience to future 
crisis of any sort. 

7  UN  Security  Council  Resolution  2231  (2015).  The  EU  will  continue  to  support  verification  organisations  such  as  the 
International Atomic Energy Agency (IAEA), the Organization for the Prohibition of Chemical Weapons (OPCW). 
8 JOIN (2020) 5, 25.03.2020, EU Action Plan on Human Rights and Democracy for 2020-2024.  
9 JOIN (2020)17 final, 25.11.2020, EU Gender Action Plan (GAP) III; see also Gender Equality Strategy 2020-2025,  
10 COM (2020) 607 final, 24.7.2020, EU strategy for a more effective fight against child sexual abuse; see also the upcoming 
EU strategy on the rights of the child (2021-24). 
11 COM (2020) 698 final, 12.11.2020, Union of Equality: LGBTIQ Equality Strategy 2020-2025. 
12 In 2019, the EU spent over EUR 75.2 billion in official development assistance and mobilised almost EUR 2 billion for 
humanitarian aid operations in over 80 countries. About 60 % of the EU’s annual humanitarian budget is provided to UN 
partners and the Red Cross and Red Crescent Movement. 

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In response to the pandemic, the EU has led international solidarity and cooperation efforts 
by  gathering  world  leaders  and  civil  society  around  a  pledging  event  to  boost  funding  for 
research and a fair and equitable access  to vaccines, diagnostics and therapeutics against 
COVID-19.  The  EU  is  working  closely  with  ACT-Accelerator  and  the  COVAX  facility  to 
ensure that the development, production and equitable delivery of safe COVID-19 vaccines is 
ramped  up  worldwide  and  will  help  its  partners  through  its  development  assistance 
programmes.  Reforming  and  strengthening  the  World  Health  Organisation  and  its  role  in 
coordinating  global  health  action,  as  well  as  the  implementation  of  the  “One  Health” 
approach13 are key in this respect.  

The severe economic crisis brought about by the pandemic is affecting the progress made in 
achieving the Sustainable Development Goals (SDGs). The global recovery must be green, 
digital,  inclusive,  just,  and  sustainable.  It  must  be  geared  towards  the  Sustainable 
Development Goals, the goals of the Paris Agreement, and the preservation of biodiversity, 
the  natural  environment  and  its  resources,  as  well  as  fighting  pollution.  This  is  why  the 
Commission has proposed a Global Recovery Initiative linking investment and debt relief to 
the 2030 Agenda to  secure a truly transformative, post-COVID-19 path.  The EU is  already 
working on multilateral actions to promote sustainable financing, as well as debt relief in line 
with  existing  initiatives,  including  the  G20-Paris  Club  Debt  Service  Suspension  Initiative 
(DSSI) and the new Common Framework for Debt Treatments. 

Economic recovery also goes hand in hand with social justice, social protection and  decent 
work. International labour standards set out in the International Labour Organisation provide 
a  tried-and-trusted  foundation  for  inclusive  recovery  but  more  can  be  done  to  promote 
worldwide  ratification  of  important  ILO  conventions14.  A  well-functioning  world  economy 
also requires multilateral rules, adapted to the realities of the 21st century that allow for open, 
fair and rules-based trade, and ensure a level playing field for all economic actors. Keeping 
markets  open,  avoiding  an  escalation  of  trade  conflicts  and  modernising  trade  rules  are 
critical for a fair and sustainable recovery. 

The European Green Deal is the EU’s growth strategy, setting out a model for sustainable 
growth  and  green  global  recovery  that  leaves  no  one  behind.  The  EU  will  also  continue  to 
encourage others to raise their climate ambitions, meet the objectives of the Paris Agreement 
and  other  environmental  agreements  such  as  the  Convention  on  Biodiversity  to  achieve 
climate  neutrality  by  mid-century  and  reverse  biodiversity  loss  by  2030.  The  2021  UN 
Conferences  of  the  Parties  on  Biodiversity  (COP15)  and  on  Climate  Change  (COP26),  and 
the UN Food Systems Summit will be key moments in this respect. 
Moreover, the EU External Investment Plan15 and the new Neighbourhood, Development and 
International  Cooperation  Instrument  (NDICI)16  represent  a  major  push  for  sustainable 
investment, growth and jobs in EU partner countries, with the private sector fully engaged. 
Digitalisation  is  another  key  enabler  of  sustainable  development  and  a  space  of  strategic 
competition  but  also  of  inadequate  multilateral  governance.  As  it  embarks  on  its  “Digital 
Decade”, the EU will prioritise the digital transformation in its international cooperation and 
partnerships. The EU will therefore continue to push for more ambitious global standards 

13 This includes improving the detection and control of emerging diseases and the zoonotic transmission of diseases, notably 
in coordination with the Food and Agriculture Organization (FAO) and the World Organisation for Animal Health. 
14 UN Secretary General Report ‘Shared responsibility, global solidarity: Responding to the socio-economic impacts of 
COVID-19’. 
15 COM (2018) 644 final, 12.9.2018. 
16 COM (2018)460, 14.06.2018. 

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and regulatory  approaches  in the digital economy  (see  also  p. 8).  In this  regard, the EU 
leads global efforts in building fit-for-purpose laws for all digital services.  

Finally,  comprehensive  and  well-managed  migration  policy  is  essential  to  achieve  a  fairer 
world, and contribute to growth, innovation and social dynamism. The Commission’s ‘New 
Pact on Migration and Asylum’17 provides a strengthened basis to achieve a sustainable and 
long-term  response  in  terms  of  migration  and  asylum  management,  fully  grounded  in 
European  values  and  international  law  and  carried  out  through  enhanced  and  mutually 
beneficial partnerships with third countries and international organisations. This will be done 
in a comprehensive manner and taking into account the EU and partner countries’ interests. 
As  the  global  leader  on  resettlement  of  persons  in  need  of  international  protection,  the  EU 
will also continue to engage with the UN and partner countries to step up global efforts in this 
regard. 

2. 

Strengthening the multilateral system (“how the EU can achieve it”) 

A  well-functioning  multilateral  system  is  an  EU  strategic  interest  in  its  own  right. 
Multilateral organisations have to remain effective in delivering global public goods. The EU 
should continue to support necessary reforms and  modernisation of multilateral institutions. 
In  June  2019,  the  Council  adopted  Conclusions  setting  out  a  strategic  approach  to  help 
strengthen rules-based multilateralism and its institutions: uphold what works, reform what 
needs to change and extend global governance to new areas.  

The EU  will work towards ensuring a truly  inclusive  multilateralism, where the voices of 
civil  society,  the  private  sector,  social  partners  and  other  key  stakeholders  count.  This  is  a 
crucial part of ensuring the relevance of the multilateral system and preserving its legitimacy. 

Uphold international norms and agreements  

The EU will support the implementation of all key international frameworks that are aligned 
with its priorities or to which it is a party. 

The EU has a strong interest in making sure the UN Security Council can fulfil its role in the 
face  of  increasing  geopolitical  tensions  and  rivalries  paralysing  its  work  and  preventing  it 
from fulfilling its responsibilities. The EU recognises the importance of active and consistent 
outreach  efforts  towards  Security  Council  members.  Ensuring  full  compliance  with  all 
relevant  principles  of  international  law,  the  EU  will  uphold  and  implement  restrictive 
measures  (sanctions)  adopted  by  the  UN  Security  Council  and  continue  to  impose  its 
autonomous sanctions, whenever necessary, and will continue to report regularly to the UN 
Security  Council  about  the  wide-ranging  EU-UN  cooperation  on  international  peace  and 
security.  The  EU  will  also  work  to  enhance  the  advisory  role  of  the  UN  Peacebuilding 
Commission as well as its own engagement with this body.  

The  EU  will  seek  to  ensure  that  the  UN  Human  Rights  Council  acts  more  efficiently, 
addresses relevant thematic rights and country situations effectively and credibly, and ensures 
synergies  with  other  multilateral  human  rights  fora.  To  safeguard  the  integrity  and 
independence  of  UN  human  rights  mechanisms  the  EU  will  encourage  increased  public 
scrutiny  of  Human  Rights  Council  membership  responsibilities  and  mandatory  pledging 
events at the UN General Assembly with candidates to the Human Rights Council.  

17 Adopted on 23 September 2020 

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The EU will continue supporting the international judicial, arbitration, and enforcement 
bodies  that  underpin  the  rules-based  international  order  –  in  particular  the  International 
Criminal  Court,  the  UN’s  Human  Rights  compliance  architecture,  the  European  Court  of 
Human rights – as regards both their jurisdiction and their effectiveness18.  

The  EU  will  firmly  push  back  against  any  attempts  to  undermine  international  law  – 
especially  with  regard  to  the  universal  values  that  underpin  the  United  Nations  and 
International  Humanitarian  Law  –  or  attempts  to  create  parallel  institutions  or  to  use  the 
existing  institutions  for  national  or  ideological  interests  that  are  at  odds  with  the  common 
good.  The  EU  calls  on  all  States  to  pay  their  assessed  contributions  to  international 
organisations  in  full  and  on  time.  Organisations  that  are  critical  for  upholding  international 
law and commitments must be appropriately funded. 

Reform multilateral organisations to make them fit for purpose.  

In the current context, effectiveness and coherence of the multilateral system is paramount, so 
that  it  is  soundly  managed  and  financed  sustainably,  and  that  universal  values  and 
international law are protected. 
The  follow-up  of  the  75th  anniversary  of  the  UN,  including  the  implementation  of  the 
Declaration commemorating it, represents a unique moment to ensure that there is a genuine 
renewal. The EU looks forward to engaging with UN Secretary-General Guterres as part of a 
broad  and  inclusive  consultation  process  leading  to  the  presentation  of  his  report  in 
September 2021. A reinforced UN ‘delivering as one’ needs to advance efficiently peace and 
security, human rights and sustainable development, to implement the 2030 Agenda, and to 
support and monitor effectively the implementation of international agreements. The EU will 
structure its engagement in a way that helps UN agencies, funds and programmes to work in 
this direction, including through acting more coherently internally, and with other aid actors 
and non-governmental organisations, as well as with the International Financial Institutions.   

The EU supports  the  reform process  initiated by the UN Secretary-General  to  make the 
UN  ‘fit  for  purpose’19.  The  EU  was  instrumental  in  securing  the  adoption  of  the  General 
Assembly resolutions that have enabled progress on the reform's three strands – management, 
peace  and  security  architecture,  and  development  system.  A  more  accountable,  transparent 
and  efficient  UN  system  will  be  in  the  interest  of  all.  The  EU  therefore  stands  ready  to 
support addressing remaining challenges and the implementation and impact on the ground, 
including through the UN Resident Coordinators. The revitalisation of the General Assembly, 
as well as a comprehensive reform of the UN Security Council, will be essential to ensure 
that the UN can truly live up to its responsibilities under its Charter in the 21st century. 

Modernisation  and  reforms  are  also  crucial  in  specific  UN  agencies  and  international 
organisations. This is why the EU is leading the process of strengthening the World Health 
Organization,  around  a  concrete  proposal  to  reinforce  its  international  preparedness  and 
response capacity to health emergencies. We must ensure that  the WHO is given a stronger 
and  more  independent  mandate  and  is  adequately  and  sustainably  resourced  to  carry  it  out. 
Furthermore  the  EU  is  leading  efforts  to  reform  and  modernise  the  World  Trade 
Organization  in  all  its  functions20  to  provide  stability,  certainty  and  fairness  in  the  global 

18 In the same vein, the EU will also continue its leading role in creating a Multilateral Investment Court, within the United 
Nations Commission on International Trade Law 
19 For example, the EU will support the UN Secretary-General’s effort to improve global digital cooperation. See the UN 
Secretary General’s Roadmap on Digital Cooperation.. 
20  See  Commission’s  Trade  Policy  Communication  of  17  February  2021  and  its  Annex  “Reforming  the  WTO:  towards  a 
sustainable and effective multilateral trading system”.    

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trading system21. The reform of the WTO will play a critical role in facilitating the economic 
recovery from the pandemic, in delivering on the objectives in the field of sustainability, and 
in developing trading rules that are more relevant to today’s digital world.   

The  International  Financial  Institutions,  in  particular  the  International  Monetary  Fund 
(IMF) and the World Bank, are amending their governance structure to better reflect today’s 
global  economy,  increasing  the  quota  and  voting  shares  of  developing  and  emerging 
members and focusing their work on current challenges22. The EU supports these institutions 
in their modernisation to enhance their transparency and efficiency. At the same time, the EU 
should  leverage  the  combined  weight  of  its  Member  States  in  these  fora  more  effectively, 
with a view to fostering their contribution to building back better globally, by speaking with 
one  voice  and  moving  towards  a  more  coherent  external  representation23.  The  European 
financial  institutions,  in  particular  the  EIB  and  the  EBRD,  subject  to  the  future  European 
Financial  Architecture  for  Development,  will  also  closely  cooperate  with  the  International 
Financial Institutions. 

Extending multilateralism to new global issues. 

The  EU  has  an  interest  in  extending  international  norms,  standards  and  global 
cooperation  in  priority  areas  where  there  is  limited  or  no  global  governance  or  where 
reinforcement  is  needed  such  as  democracy,  rule  of  law,  international  taxation,  digital 
cooperation,  consumer  protection,  environmental  degradation,  oceans,  natural  resource 
governance  and  raw  materials  security  and  sustainability  as  well  as  green  technologies  and 
renewable energy.  

To  this  end,  the  EU  will  further  engage  in  active  regulatory  cooperation,  including  in 
international norm setting organisations, by leveraging its financial and regulatory power to 
help shape global norms and standards. Notable examples of such initiatives are the  Global 
Partnership  on  Artificial  Intelligence  (GPAI)24,  the  Council  of  Europe’s  Ad  hoc 
Committee  on  AI  (CAHAI),  the  International  Platform  on  Sustainable  Finance25,  the 
2020  G7  High-Level  Transportation  Principles  in  Response  to  COVID-19,  the  High 
Ambition Coalition on Biodiversity, the Global  Coalition for a High Seas Treaty26 and 
the Global Alliances on Circular Economy and Resource Efficiency. 

The  implications  of  new  digital  technologies  including  artificial  intelligence  need  to  be 
addressed  globally,  in  full  compliance  with  a  human-centric  and  inclusive  digital 
transformation, human rights and the rule of law, through more ambitious global standards 
and  rules.  The  modern  privacy  rules  in  place  in  the  EU  and  the  recently  proposed  Digital 
Services Act and Digital Markets Act aim in this regard to create a safe online environment 
for  citizens  and  to  foster  innovation,  growth  and  competitiveness  in  the  single  market.  The 
EU’s  action  in  multilateral  fora  will  need  to  strike  a  delicate  balance  between  pursuing  the 
need  for  technological  sovereignty  while  upholding  the  openness  of  the  internet  and 
fundamental rights. To this end it must engage with all international partners on the ongoing 

21 The reform of the World Custom Organization will also be important in this respect.    
22 For example, the World Bank Group Umbrella 2.0 Trust Funds Reform and the idea to shape the portfolio of trust funds 
and financial intermediary funds around fewer, larger umbrella 2.0 programs. 
23  COM(2015)602  final,  21.10.2015  “Roadmap  for  moving  towards  a  more  consistent  external  representation  of  the  euro 
area in international fora”. 
24 Guides responsible development and use of AI, grounded in human rights, inclusion, diversity, innovation, and growth. 
25  Allows  policy  makers  to  discuss  standard-setting  and  to  establish  best  practices  on  how  to  drive  investments  towards 
green activities. 
26  The  EU  calls  for  the  conclusion  in  2021  of  an  international  agreement  on  marine  biological  diversity  of  areas  beyond 
national jurisdiction) under the UN Convention on the Law of the Seas.  

8 

 
                                                           
challenges to digital governance. This includes digital taxation, data protection and privacy, 
tackling disinformation, illegal content online, 5G, internet governance, cybersecurity, digital 
finance including payments and cryptocurrencies, and e-government where current rules are 
insufficient.  

To  this  end,  the  EU  will  promote  its  policy  and  regulatory  approaches,  including  the 
protection of personal data, the free flow of data with trust, net neutrality and the promotion 
of ethical principles in the context of human-centric and trustworthy artificial intelligence27. 
The EU will also work in multilateral fora to fight abuses such as the disproportionate access 
of  governments  to  personal  data28.  Finally,  the  EU  will  contribute  to  finding  common 
solutions in existing fora, as is the case for the ongoing work at the G20 and the OECD, with 
respect to a global consensus-based solution to address the taxation of the digital economy. 

Access to and use of outer space should equally be shaped by international rules or standards 
and  by  a  governance  system  aimed  at  guaranteeing  the  long-term,  sustainable,  responsible 
and peaceful use of space.  

Actions: 

  Engage actively in the reflection process in follow-up to UN75 to support efforts to 

reinvigorate effective and inclusive multilateralism, leaving no-one behind. 

  Support  the  UN  Secretary-  General’s  reform  process,  including  a  ‘one  UN’ 
approach  at  country  level,  by  working  in  priority  through  with  Resident 
Coordinators and UN Country teams.   

  Support the UN Secretary-General’s Action for Peacekeeping initiative by updating 
the EU-UN partnership on crisis management and peace operations and exploring 
opportunities for new partnerships, including EU-UN-African Union cooperation. 
  Support the UN Secretary-General’s call for a global cease-fire by taking forward 
the new EU mediation concept in support of multilateral responses to emerging or 
ongoing crisis situations. 

  Lead and support the reform of  the  World  Health Organization  and of  the  World 

Trade Organization. 

  Lead  efforts  to  increase  ambitions  internationally  with  a  view  to  the  2021  UN 
Conferences  of  the  Parties  on  Biodiversity  (COP15)  and  on  Climate  Change 
(COP26 

  Establish  an  annual  Strategic  Dialogue  with  the  UN  High  Commissioner  for 

Human Rights on human rights policy and cooperation in the field.  

  Conclude  the  EU’s  accession  to  the  European  Convention  on  Human  Rights  and 

Fundamental Freedoms. 

  Reinforce  EU  advocacy  and  action  in  support  of  compliance  with  International 

Humanitarian Law and the humanitarian principles. 

  Align  EU  support  with  the  implementation  of  reforms  promoting  openness, 
transparency,  accountability,  efficiency  and  effectiveness  in  all  multilateral 
institutions, 
including  rationalised  overhead  costs,  coordinated  standards, 
collaborative  approaches,  good  governance  and  transparency  in  the  system, 

27 As a concrete example, the Commission will launch a dedicated project with the United Nations Interregional Crime and 
Justice Research Institute (UNICRI) to develop a global toolkit for practical guidance towards an ethical and high quality 
artificial intelligence able to translate ethics into practice in the field of law enforcement. 
28 COM (2020) 66 final, 19.2.2020, ‘A European strategy for data’. 

9 

 
 
 
 
                                                           
adequate EU visibility, as well as innovative and simplified funding methods. 

  Pursue a more active role in international technical standardisation and contribute 
to the development of new norms in areas which are insufficiently regulated, inter 
alia by supporting the development of normative frameworks for human-centric and 
trustworthy AI technologies 

  Support  the  development  of  normative  frameworks  for  new  weapons  technologies 

and new dimensions of warfare such as cyber and outer space. 

III.  A  Stronger  Europe  partnering  with  the  multilateral  system  (“what  the  EU  can 

do”)  

The  EU’s  strategic  objective  going  forward  will  be  to  better  leverage  its  role  and 
contributions to the multilateral system to more effectively pursue its interests and defend its 
values.  

The EU and its  Member States are key  participants and contributors to the  multilateral 
system. Approximately  one quarter of both the UN’s regular and the peacekeeping budgets 
comes  from  EU  Member  States,  as  does  over  30%  of  funding  (core  and  voluntary)  of  all 
development,  peacebuilding  and  humanitarian  activities29.  At  the  International  Monetary 
Fund, EU Member States hold 26% of voting power at the Executive Board underpinning a 
third of IMF resources. Over 25% of the capital of various branches of the World Bank and 
over 30% of Trust Fund contributions come from the EU and its Member States. 

(i) 

Strengthen EU coherence and coordination 

Together, the EU and its Member States have a powerful influence in the multilateral system 
wherever they effectively use coordination mechanisms, representation and funding capacity 
as a bloc of 27, in support of the EU’s political objectives, values and role as an international 
standard-setter.  This  is  however  not  the  case  across  the  board,  resulting  in  some  instances 
where the EU collectively punches below its weight.   

To  maximise  that  collective  influence,  the  EU  should  further  strengthen  its  coherence, 
unity  and  solidarity  in  multilateral  fora30.  The  EU  and  its  Member  States  must 
coordinate their positions, actions and messaging, and act as one, in line with the Treaties.  

To that end, the EU and its Member States must improve information  sharing,  consultation 
and coordination, including in the governing bodies and boards of multilateral bodies where 
the  Union  is  not  represented.  For  instance,  the  EU  should  work  to  establish  coordination 
mechanisms  in  all  International  Financial  Institutions  (IFIs),  similarly  to  what  is  already 
happening at the International Monetary Fund. 

29 The EU 27 Member States’ contributions account for 23.94% the regular UN budget and for 23.8% of the peacekeeping 
budget for the triennium 2019-2021. 
30  This  cooperation  is  an  obligation  that  follows  from  the  duty  of  loyal  cooperation  under  Article  4.3  TEU  or  Council 
decisions adopted under Article 218(9) TFEU and, for CFSP matters, from art. 34 TEU. The Treaty also provides that EU 
Member States should act in a spirit of loyalty and mutual solidarity, and refrain from any action that is likely to impair the 
effectiveness of the Union as a cohesive force in international relations (art. 24.3 TEU). 

10 

 
 
 
 
 
 
                                                           
As the presence of EU Member States on the UN Security Council is set to decrease to only 
two in 2022 (until earliest 2025), ensuring effective EU cooperation on matters related to 
the  UN  Security  Council  is  a  priority.  This  should  build  on  the  ongoing  strengthening  of 
cooperation between EU Member States who are members of the Security Council, whether 
permanent  or  non-permanent,  and  provide  a  channel  to  promote  the  EU’s  positions  in  that 
organ. 

The  often  interdependent  nature  of  the  economic,  political  and  security  spheres  demands 
better coordination across policies at all levels. Moreover, the EU should leverage its role 
as  a  global  powerhouse  in  research  and  innovation  to  ensure  that  multilateral  action  is 
informed by the best possible scientific evidence31. 

(ii)  Speaking with one voice  

The  EU’s  ability  to  participate  actively,  be  represented  effectively  and  speak  with  one 
voice  is  key.  The  EU  has  all  the  necessary  attributes  to  be  a  fully-fledged  member  in 
international organisations, or to participate in them with an enhanced observer status32. To 
ensure that the EU speaks with one voice and acts on matters falling within its competences, 
the  external  representation  role  of  the  EU  in  international  organisations  is  vested  with  the 
European Commission33, as well as with the High Representative for matters falling under the 
Common Foreign and Security Policy, and with EU Delegations on their behalf.  

The  Commission  and  the  High  Representative  will  use  their  power  of  initiative  in  a  more 
targeted way to improve the formulation of EU positions to be taken in international fora, 
not  least  in  view  of  giving  EU  representatives  more  tactical  flexibility.  Furthermore,  to  be 
able  to  make  decisions  in  a  faster  and  more  effective  way,  the  Council  also  needs  to  use 
Treaty provisions that allow for constructive abstention and for the adoption of decisions by 
qualified  majority  voting  in  Common  Foreign  and  Security  Policy34.  This  is  particularly 
important when it comes to reacting to international law violations, including of International 
Human Rights Law and International Humanitarian Law. This approach would also allow the 
EU to be quicker and more effective in reacting to those violations by adopting EU sanctions. 
The adoption of the EU global human rights sanctions regime35 is an important milestone in 
strengthening our collective action in this field.  

In many instances and for various reasons, the EU does not have full membership rights of 
international  organisations.  This  has  not  prevented  formal  arrangements  in  the  form  of 
participation as observer or even pragmatic ad hoc arrangements with Member States and/or 
the organisations concerned and their members, providing the EU and its representatives with 
the capacity to effectively intervene and act beyond its formal status. The EU is recognised as 
a reliable constructive partner and a deal maker. A recent example was the May 2020 World 
Health Assembly  where, despite not  being  a member, the  EU was the driving  force behind 
the  Resolution  on  COVID-19  response.  Nevertheless,  in  other  important  cases  such 

31  Examples:  the  Intergovernmental  Panel  on  Climate  Change  and  the  Inter-governmental  Science-Policy  Platform  for 
Biodiversity and Ecosystem Services, which have largely been supported by the EU Framework Programme for R&D. 
32 Resolution 65/276 of the UN General Assembly of 3 May 2011 concerning the participation of the EU in the work of the 
United Nations is the clearest international recognition of the capacity of the Union to act at international level. 
33 For example, the EU is a member of the Hague Conference on Private International Law, where the Commission speaks 
on behalf of the EU on matters covered by EU exclusive competence. 
34  Art.  31  TEU.  See  also  Commission  Communication  of  12  September  2018  A  stronger  global  actor:  a  more  efficient 
decision-making for EU Common Foreign and Security Policy (COM (2018) 647 final).  
35 Council Regulation (EU) 2020/1998 and Council Decision (CFSP) 2020/1999 of 7 December 2020 concerning restrictive 
measures against serious human rights violations and abuses, OJ L410I of 7.12.20. 

11 

 
 
                                                           
arrangements  either  do  not  exist,  are  unnecessarily  cumbersome,  outdated,  or  prevent  the 
Commission and/or the High Representative from speaking effectively on behalf of the EU in 
matters  falling  under  EU  competence.  One  case  in  point  is  the  Food  and  Agricultural 
Organisation,  where  the  EU’s  capacity  to  be  effective  is  undermined  by  outdated 
arrangements  with  Member  States  that  are  not  in  line  with  the  Treaties.  The  EU  should 
therefore urgently assess on a case-by-case basis whether its status in a given international 
organisation, fund or programme requires adaptation or upgrade, in accordance with the EU 
Treaties, and do what is necessary to achieve the adaptation or upgrade. 

(iii)  Funding the multilateral system 

In terms of funding the multilateral system at global, regional and country level, the Team 
Europe approach36 allows for more effective leveraging of the collective contributions of 
the  EU  and  the  Member  States,  in  support  of  and  linked  to  the  implementation  of  agreed 
policy priorities and more coherence in international fora. The EU should continue to make 
clear what it expects from its partners and make better use of this leverage. This means that, 
where  necessary,  the  EU  should  be  ready  to  calibrate  its  funding  to  specific  multilateral 
initiatives or organisations in accordance with how such policy priorities are met. Generally, 
the visibility of EU support should be ensured. 

(iv)  The EU’s presence in the multilateral institutions 

When it comes to leadership positions in multilateral organisations the EU should support 
candidates  with  the  highest  professional,  managerial,  ethical  and  political  standards.  At  the 
same time, there is an urgent need for a more coordinated and strategic approach and better 
exchange of information, including with third country partners. This also applies for elections 
to  UN  bodies  such  as  the  Human  Rights  Council.  Consultations  in  Council  should  be 
intensified. Similarly, the EU should work on developing an EU staff exchange and presence 
policy in international organisations, at all levels. 

Actions: 
  Better  coordinate  with  Member  States  on  candidacies  for  senior  positions  and  on  key 

elections in multilateral organisations. 

  Better  leverage  the  significant  EU  and  Member  States’  funding  to  multilateral  and 
regional organisations, including via the Team Europe approach and more coordinated 
messaging in  the governing  bodies of  UN agencies, funds and programmes, in  order to 
pursue the Union’s values and interests more effectively also as regards reforms of those 
organisations.  

  Clarify or upgrade the EU’s legal status or prerogatives in international organisations, 

where necessary and in line with the Treaties. 

  Further strengthen the EU's role and presence in the governing bodies of UN agencies, 

funds and programmes.  

  Establish strong EU coordination mechanisms in International Financial Institutions by 
speaking with one voice and moving towards a more coherent external representation. 

36  The  ‘Team  Europe’  approach  draws  contributions  from  all  EU  institutions  and  combines  resources  mobilised  by  EU 
Member States and financial institutions, while respecting the EU competences and decision-making procedures set out in 
the Treaties. 

12 

 
 
 
 
                                                           
 

Increase  the  visibility  of  EU  contributions  through  common  narratives,  positions  and 
statements  on  UN  resolutions  and  seek  closer  coordination  with  Member  States  on 
voluntary contributions to the UN. 

  Enhance  the  visibility  of  EU’s  role  as  the  only  Regional  Organisation  party  to  the  UN 

Convention on the Rights of Persons with Disabilities. 

  Leverage  European  research  and  innovation  to  strengthen  the  evidence  base  of 

multilateral policy-making. 

(v)  Alliances, Partnerships and regional co-operation 

In  an  increasingly  multi-polar  and  interdependent  environment,  the  EU  is  recognised  as  a 
stable  and  predictable  partner  and  as  a  vocal  defender  and  promotor  of  the  rules-based 
multilateral system.  

The  current  context  calls  for  a  clearer  and  better  articulated  strategic  approach  to 
engagement  with  our  international  partners.  The  EU  should  seek  such  partnerships  not 
only  to  advance  its  own  priorities,  but  as  a  common  effort  to  find  sustainable  solutions  to 
global challenges based on the rule of law rather than the rule of the strongest. The EU needs 
to diversify its global engagement by exploiting the potential for cooperation in multilateral 
fora, building on the following principles: 

  Stronger cooperation with like-minded partners to defend universal principles and 
rules. The EU will better concert efforts with all interested partners in defending the 
multilateral acquis37, especially with regards to democracy, human rights, and the rule 
of  law,  including  the  possibility  for  third  countries  to  align  with  EU  statements  in 
multilateral  organisations  and  fora.  We  will  work  urgently  with  partners  who  share 
our  values  and  principles  to  strengthen  democratic  institutions,  fight  corruption, 
authoritarianism and human rights abuses around the world, and promote a common 
agenda based on democracy, human rights, equality and the rule of law. In this regard, 
the arrival of the new US administration creates a positive momentum38 and the EU 
should  seize  all  opportunities  to  rebuild  the  EU-US  relations  and  preserve  strong 
links,  for  instance  with  the  UK.  Finally,  in  in  the  boards  of  international  financial 
institutions, we will also use the spread of EU Member States in regional groupings as 
an opportunity to systematically develop joint objectives with interested partners. 
  Issue-based  cooperation  and  common  initiatives.  The  EU  will  extend  its  global 
engagement  to  deal  with  transnational  challenges  such  as  health,  security  threats, 
climate  change,  biodiversity  loss,  or  other  areas  of  common  interest,  such  as 
education,  youth,  science,  technology  and  innovation39.  Supply  chain  disruption 
during  the  pandemic  has  shown  the  importance  of  maritime  routes  for  the  global 
economy. The EU will work with partners to promote respect for basic principles of 
maritime passage, security and safety as well as protection of the oceans. 

  Diversifying  partnerships  and  working  with  regional  organisations.  The  EU  will 
make better and more coherent strategic use its cooperation with third countries and 

37 The Alliance for Multilateralism and the Global Alliance on Circular Economy and Resource Efficiency (Commission 
Decision C(20201)15) are a good examples of such political innovation.  
38 See Communication on ‘A new EU-US agenda for global change’; JOIN (2020)22 final, 2.12.2020.  
39 Examples of this approach include the EU’s cooperation on climate change with China and solar energy with India, the 
Global Alliance on Circular Economy and Resource Efficiency, the High Ambition Coalition for Nature and People or the 
Mission Innovation on Clean Energy and the All-Atlantic Ocean Research Alliance. 

13 

 
 
 
 
                                                           
regional and sub-regional  organisations, in  particular when a strategic framework or 
an international agreement covering international cooperation is in place. This is the 
case for the African Union (including in trilateral formats with the UN), but also – to 
take just one example – the members of the Organisation of African, Caribbean and 
Pacific  States  (OACPS),  with  which  there  is  a  common  endeavour  to  enhance 
multilateralism.  The  more  regional  and  global  organisations  work  together,  the 
stronger we are collectively and the more robust the multilateral system becomes. The 
EU will continue to engage in the promotion of regional cooperation through relevant 
multilateral  regional  organisations  and  multilateral  platforms  like  the  Eastern 
Partnership  (EaP),  the  Union  for  the  Mediterranean  (UfM)  and  the  Asia-Europe 
Meeting (ASEM). 

  Building  alliances  to  promote  standards  and  regulatory  approaches.  The  EU  will 
develop  and  improve  alliances  within  international  standard  setting  bodies40.  When 
considering  or  adopting  new  internal  initiatives  with  an  international  dimension  the 
Commission will in parallel engage internationally. The EU will for example seek to 
build  a  coalition  of  like-minded  countries  for  a  human-centric  and  rules-based 
governance  of  artificial  intelligence  technologies.  It  will  propose  early  engagement 
with concerned partners on the Carbon Border Adjustment Mechanism. 

‘Non-traditional’  coalitions  and  formats  should  be  explored,  building  on  lessons  from 
processes  such  as  the  EU,  China  and  Canada  co-convened  Ministerial  Meeting  on  Climate 
Action,  the  Paris  Peace  Forum  and  Finance  in  Common  summit.  Multi-stakeholder 
partnerships  between  governments,  the  private  sector,  civil  society,  academia  and  the 
scientific  community  are  key  for  shaping  inclusive  multilateralism  and  act  as  a  catalyst  for 
reform.  For  example,  the  EU  has  worked  with  the  Coalition  for  Epidemic  Preparedness 
Innovations (CEPI) and the GAVI initiative on the development and distribution of COVID-
19 vaccines.  

To  facilitate  alliance-building,  the  EU  will  more  actively  use  its  network  of  140  EU 
Delegations,  working  together  with  Member  States’  Embassies  to  make  the  case  for 
multilateralism  and  mobilise  support  for  EU  initiatives.  In  other  words,  the  EU  will  ensure 
greater  consistency  between  its  multilateral  and  bilateral  diplomacy,  “multilateralising” 
bilateral  engagement,  and  “bilateralising”  the  multilateral  approach.  The  multilateral 
dimension should be integrated more systematically in all the EU’s political dialogues with 
third  countries,  from  summits  to  working  level  contacts.  The  EU  will  make  it  clear  that  it 
expects  partners  to  translate  joint  commitments  into  practice,  and  will  use  its  network  and 
leverage to this end.   

Finally, the EU will further strengthen its role and influence in informal multilateral fora such 
as the G20 and the G7 to increase their capacity to deliver, as they shape and reinforce the 
multilateral  agenda  and  deliver  strong  crisis  response  and  concrete  solutions  for  global 
problems.  The  immediate  priority  here  is  to  ensure  a  strong  global  economic  and  health 
policy coordination that helps the sustainable, inclusive and resilient recovery. 2021 will be 
important in these fora, as Italy will chair the G20 and the UK will chair the G7, whilst the 
two will co-host the United Nations Climate Change Conference (COP26). The EU will co-
sponsor  with  Italy  the  Global  Health  Summit  to  strengthen  pandemic  preparedness  in  May 
2021.  

40 For example, the International Organization for Standardization, the International Electrotechnical Commission and the 
International Telecommunication Union.   

14 

 
 
 
                                                           
Actions: 
  Promote a common agenda with interested partners based on democracy, human rights, 

equality and the rule of law. 

  Support  new  inclusive  formats  of  multilateral  engagement,  such  as  the  Alliance  for 

Multilateralism, the Paris Peace Forum and the Finance in Common Summit.  

  Ensure  systematic  follow-up  of  bilateral  commitments  with  third  countries  to  advance 

multilateral objectives. 

  Boost the role of regional organisations in the UN system by proposing a yearly summit 

of heads of regional organisations. 

  Assist  partner  countries  to  engage more effectively in  the multilateral  system, including 

through capacity building, knowledge-sharing, training or twinning. 

(vi)  Working with Multilateral Institutions 

The EU will define its partnerships with multilateral organisations as a function of their 
alignment with universal agendas and EU interests and their ability to pursue them. The 
EU and many multilateral organisations are natural allies. There are many success stories and 
areas  where these partnerships have helped shape global  governance, and above all made  a 
difference  in  the  field  of  global  economic  and  financial  policy  coordination,  development, 
humanitarian response, climate change, environment, and peace and security.  

respect 

Multilateral  actors,  and in  particular  UN entities, are  key implementers  for the delivery of 
EU’s  development  and  humanitarian  assistance.  They  can  also  be  holders  of  important 
normative  and  standard  setting  mandates,  as  is  the  case  for  the  UN  Environment 
International 
Programme  with 
Telecommunication  Union  in  setting  the  internet’s  interoperable  and  open  standards.  They 
can  also  be  important  policy  and  strategic  interlocutors,  with  whom  joint  priorities  and 
structural issues are addressed – as for instance, through the regular high-level dialogues with 
the World Bank. On peacekeeping and peacebuilding, EU crisis management missions and 
operations and UN Peacekeeping operations active in the same operational theatre cooperate 
closely and provide each other with strategic, logistical, medical and security support.  

agreements,  or 

environmental 

the 

to 

A  key  element  for  such  partnerships  will  be  the  establishment  of  high-level  political 
dialogues.  For  example,  the  EU  will  seek  to  strengthen  coordination  with  the  UN  through 
regular Leaders’ meetings (‘EU-UN Summits’) analogous to the well-established high-level 
exchanges  with  the  leadership  of  the  Bretton  Woods  institutions.  That  work  could  be 
complemented  by  more  regular  political  level  stocktaking  in  priority  areas  for  the  EU  (e.g. 
climate and the environment, digital, human rights and development), building upon existing 
frameworks.  

The  beginning  of  the  new  EU  financial  cycle  and  its  innovative  instruments,  such  as 
financial guarantees, has also the potential to drive multilateral reforms and efficiency. In the 
programming  process  under  the  new  Neighbourhood,  Development  and  International 
Cooperation  Instrument  (NDICI)  the  EU  will  better  focus  on  what  can  be  done  together  at 
country, regional and multilateral level, under a policy-driven approach. The Team Europe41 
approach  allows  to  define  a  common  agenda  and  to  leverage  EU  and  its  Member  States’ 
funding,  normative  power  and  strong  country  presence  to  engage  with  partner  countries, 

41 JOIN (2020) 11 final, 8.4.2020, Communication on the Global EU response to COVID-19. 

15 

 
 
 
 
                                                           
multilateral organisations42 and other partners around joint priorities at country, regional and 
multilateral level. 

To  increase  the  effectiveness  of  its  external  action,  the  EU  will  work  towards  aligning  its 
funding  to  the  multilateral  system  more  closely  with  its  agreed  policy  priorities, 
including  development  cooperation  priorities,  while  respecting  criteria  for  Official 
Development Assistance and principles for development aid effectiveness. The EU will also 
continue working towards a more strategic approach to quality voluntary funding for key UN 
funds,  programmes  and  specialised  agencies  as  well  as  other  international  organisations.  It 
will  regularly  and  strategically  assess  its  funding  to  key  multilateral  organisations, 
International Financial Institutions and UN agencies, funds and programmes to identify and 
update clearer priorities per entity, track implementation, and increase its visibility.43 

Actions : 
  Establish a regular EU-UN Summit. 
  Maintain  and  further  strengthen  annual  Strategic  Dialogues  with  major  UN  agencies, 

funds and programmes, and Bretton Woods Institutions. 

  Define  EU  interests  and  priorities  systematically  across  multilateral  organisations  and 
base the EU’s engagement on its strategic interests and presence in those organisations, 
as well as their mandates, and potential to deliver on the EU’s priorities. 

  Engage  the  relevant  multilateral  organisations  on  the  basis  of  EU  defined  priorities 

through Team Europe Initiatives at country, regional and multilateral level.  

IV.  Conclusions  

The  peace  and  prosperity  of  the  European  Union  and  its  citizens  depend  on  the  peace  and 
prosperity of the rest of the world and on a healthy  planet. A well-functioning, reliable and 
efficient multilateral system is essential to achieve those goals. 

By acting multilaterally whenever it can and being ready to act autonomously if it must, the 
EU  can  best  contribute  to  harness  globalisation44.  This  is  at  the  heart  of  our  work  towards 
open strategic autonomy.  

Principles of the EU’s multilateral engagement: 
  The  EU  will  work  for  a  renewed  rules-based  multilateralism  serving  global 

governance and EU and global interests and values.  

  The  EU  will  defend  universal  values  and  international  law,  including  human  rights 
that form the bedrock of cooperative relations between countries and peoples, and will 
promote  global  agendas  such  as,  the  UN  2030  Agenda  and  its  SDGs,  and  the  Paris 
Agreement. 

  The  EU will project  its own strategic priorities – especially in  areas such as human 

42  In  several  multilateral  fora  (e.g.  IMF,  World  Bank,  Multilateral  Development  Banks),  the  Commission  provides 
significant  financial  support  despite  not  being  a  shareholder.  In  those  cases,  the  Team  Europe  approach  can  enhance  the 
impact and influence of the EU in those institutions.  
43 Financing should not only be assessed in absolute terms, but also pro rata. For example, Regional Fisheries Management 
Organisations (RFMOs) operate under a relatively modest budget, with EU as largest voluntary contributor to projects.  
44 Commission Reflection paper on Harnessing Globalisation, COM(2017) 240 of 10 May 2017.  

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rights,  democratic  values  and  the  rule  of  law,  sustainable  development  and  human 
security,  climate  and  environmental  protection  and  digital  technologies  –  and  will 
make  the  most  out  of  its  political,  diplomatic,  and  economic  leverage  to  defend  its 
interests and promote its values. 

  The EU will promote reform, effectiveness and efficiency of the multilateral system 
and  a  truly  inclusive  multilateralism  where  governments,  civil  society,  the  private 
sector, academia and other stakeholders work together. 

  The  EU  will  step  up  its  leadership  and  make  better  use  of  its  ability  to  act  as  a 
convenor,  honest  broker and bridge-builder, deepen  partnerships  and alliances with 
third  countries,  multilateral  and  regional  organisations,  and  reinforce  coalitions  on 
key priorities. 

  The EU will be the best ally of multilateral partners but will demand focus conducive 

to transformation and truly strategic relationships. 

  The  EU  will  ensure  greater  consistency  between  its  multilateral  and  bilateral 
diplomacy and will act with a coherent and united voice in global fora. The EU must 
‘deliver as one’ to ‘succeed as one’. 

The  Commission  and  the  High  Representative  invite  the  European  Parliament  and  the 
Council to endorse the approach set out in this Joint Communication, and to work together on 
the implementation and review of its actions. 

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