JOINT STAFF WORKING DOCUMENT STAKEHOLDER CONSULTATION - SYNOPSIS REPORT European strategy for international energy engagement Accompanying the document Joint Communication to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions EU External Engagement in a Changing World
Date: 2022-05-18
Institutions: Directorate-General for Energy, European Commission
Subjects: EU energy policy, energy cooperation, energy efficiency, energy supply, energy transition, green economy, hydrogen, renewable energy, security of supply, third country

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 18.5.2022  SWD(2022) 152 final  JOINT STAFF WORKING DOCUMENT  STAKEHOLDER CONSULTATION - SYNOPSIS REPORT  European strategy for international energy engagement Accompanying the document Joint Communication to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions EU External Engagement in a Changing World {JOIN(2022) 23 final}  
 
 
1. Introduction 
In  its  Conclusions  on  climate  and  energy  diplomacy  of  25  January  20211,  the  European 
Council  invited  the  European  Commission  and  the  High  Representative  of  the  European 
Union for Foreign Affairs and Security Policy / Vice-President of the European Commission 
to prepare a new strategy on the EU’s international energy engagement. 

Under  the  better  regulation  framework,  the  European  Commission  consults  European 
stakeholders  and  citizens  on  every  new  initiative.  This  document  summarises  the  responses 
submitted to the targeted consultation on a new “European external energy engagement in a 
changing  world”,  hereafter  the  strategy,  which  ran  from  September  2021  to  February  2022, 
and the reactions received to the Call for Evidence that was open for public feedback from 22 
November  2021  to  20  December  2021  on  the  European  Commission  dedicated  web-site 
“Have-your-say”2. 

The aim of the consultation was to gather the views of interested citizens and stakeholders on 
the draft content of the strategy.  

Consultation activities included multilateral and bilateral stakeholder conferences, the online 
public consultation, and an analysis of position papers submitted to the European Commission 
via  the  targeted  consultation  process  and  the  Call  for  Evidence.  Both  qualitative  and 
quantitative methods were used to analyse the input from stakeholders. 

The  consultation  process  took  place  prior  to  Russia’s  invasion  of  Ukraine  on  24  February 
2022.  Some  aspects  of  the  changing  geopolitical  landscape  are  therefore  not  yet  properly 
reflected in the answers of participants at the time. Other aspects, e.g. like the price spikes and 
security  of  supply  issues,  existed  already  well  beforehand  and  have  now  still  become  more 
accentuated by the war. 

2. Outcome of the stakeholder consultation 

2.1.  Targeted consultation 

In preparation to the targeted consultation, the Commission carried out a mapping of the key 
stakeholders, including public authorities, industry, think tanks, academia and research as well 
as international organisations. 

include  EU  Member  States,  EU  Delegations 

Those  consulted 
third  countries, 
representatives  of industry  and industry  associations, think tanks, academia and research,  as 
well as the International Energy Agency (IEA), the International Renewable Energy Agency 
(IRENA), the European Investment Bank (EIB) and the Energy Community Secretariat.  

in 

The Commission held together with the European External Action Service (EEAS) a series of 
on-line consultation meetings with these stakeholders based on a background document that 
informed about the envisaged context of the new strategy, its objectives as well as the main 

1 Council Conclusions on climate and energy diplomacy, 25 January 2021 
2 https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/13276-Energy-diplomacy-
European-strategy-on-international-energy-engagement/feedback_en?p_id=27491110 

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proposed measures and actions to achieve these objectives. It also included specific questions 
for  more  targeted  input.  In  addition  to  the  discussions  and  exchange  during  these  on-line 
consultation  meetings,  several  stakeholders  also  provided  comments  in  form  of  position 
papers. 

Structure of the strategy 

The  huge  majority  of  stakeholders  agreed  to  the  broad  outline  of  the  strategy  with  its  main 
thematic focus on 1) accelerating the global energy transition, 2) energy security in the clean 
energy  transition,  3)  trade  in  clean  energies,  4)  geopolitical  challenges  and  opportunities, 
5) fostering  clean  energy  technologies,  and  6)  architecture  of  international  clean  energy 
cooperation.  Several  stakeholders  wanted  to  see  further  accentuation  of  some  of  those 
elements,  e.g.  including  a clearer reference to  the Paris Agreement  and the European Green 
Deal  as  the  basis  for  European  international  cooperation  or  the  introduction  of  non-energy 
specific aspects such as environment, climate, industry and digitalisation. 

Accelerating the global energy transition  

The majority of respondents suggested that the EU has the responsibility and the expertise to 
lead  by  example  when  it  comes  to  the  global  energy  transition.  A  number  of  stakeholders 
called  on  the  EU  to  make  good  use  of  the  COP-26  momentum  and  strengthen  its  efforts  at 
bilateral  and  multilateral  levels  to  help  defining  and  setting  targets  leading  to  significant 
global CO2 emissions reduction. Several respondents suggested emphasizing more the EU’s 
responsibility  for  promoting  the  global  energy  transition  e.g.  via  renewables  and  to  focus 
stronger  on  the  demand  side  next  to  generation,  e.g.  via  the  global  promotion  of  energy 
efficiency  and  eco-design  standards  and  labelling  of  products.  However,  a  few  respondents 
also questioned the strong reliance on renewable energy sources and raised concerns on their 
reliability in relation to energy security. 

As  regards  geographic  priorities,  many  stakeholders  mentioned  future  challenges  for  fossil 
fuels exporting and consuming countries, and advocated to respect the different starting points 
of countries and the need for tailor-made approaches  in  third countries,  e.g. in  Sub-Saharan 
Africa. Some suggested that the strategy should clearly identify third countries or regions that 
can benefit from the EU’s transition support measures. Others cautioned that third countries 
with  middle-income  status  risk  benefiting  under  the  EU  framework  from  limited  financial 
support  despite  their  pressing  energy  transition  needs.  Some  respondents  highlighted  the 
necessity to attract in addition to public funds also increasingly private capital for accelerating 
the global energy transition. 

In general, stakeholders considered the EU’s ‘Just Transition’ approach as good narrative for 
the  strategy.  Several  respondents  highlighted  the  particular  relevance  of  the  South  African 
coal phase-out project that was launched at COP-26. Many underlined the importance of the 
multi-party  support  alliance  and  considered  that  the  coal  phase  out  project  could  serve  as 
positive  example  for  others  (e.g.  in  South-East  Asia).  Some  suggested  to  develop  the  Just 
Transition concept further and to apply it not only for coal phase-out measures but also as a 
transition tool for fossil fuel exporters and to integrate the aspect of access to affordable and 

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sustainable energy. Very few stakeholders questioned the consistency of the EU’s fossil fuel 
subsidies  phase-out  approach.  Others  suggested  supporting  national  and  regional  grass  root 
associations and NGOs in third countries with a dedicated programme to shape the regulatory 
environment for renewables from bottom-up and to professionalise the local industry. 

Energy security in the clean energy transition  

All respondents considered the further electrification and de-carbonization as key elements of 
any  international  energy  engagement  strategy.  Some  highlighted  the  importance  to  find  the 
right  balance  between  guaranteeing  the  more  traditional  energy  security  focusing  on  fossil 
fuels  in  the  short-  to  mid-term,  notably  on  natural  gas,  and  responding  to  the  new 
dependencies  and  the  challenge  to  secure  reliable,  sustainable  and  cost-effective  access  to 
critical raw materials for clean energy carriers with the view to phase out fossil fuels in the 
long  term.  Consequently,  some  of  them  suggested  merging  the  sections  on  energy  security 
and trade in clean energies. 

Many  respondents  highlighted the importance of  natural  gas as transition  fuel  in  the  energy 
transition context. They identified continued need for regulatory dialogues with gas exporting 
countries, including on LNG infrastructure, gas storage capacities but also on renewable gases 
and  the  refurbishment  of  pipelines  to  make  them  fit  for  future  hydrogen  deliveries.  Some 
anticipated  a  substantial  GDP  reduction  in  gas  exporting  countries  (e.g.  Africa),  due  to  the 
clean energy transition, and identified an economic diversification support role for the EU in 
those countries. 

Many stakeholders wanted to see a strong infrastructure focus in the strategy, particularly in 
the  EU’s  neighbourhood  to  the  East  and  to  the  South.  Some  respondents  stressed  the 
importance  of  existing  EU  infrastructures  instruments  (e.g.  Projects  of  Common  Interest), 
others advocated possible new ones (e.g. a new infrastructure platform). Several respondents 
considered it important to announce in the strategy concrete infrastructure projects that the EU 
plans  to  support  in  the  neighbourhood.  Others  underlined  the  importance  of  cooperating  on 
hardware (i.e. grid) and software (i.e. regulation, market design, network codes) in the region 
and promoted further interconnections. 

Several  respondents  wanted  to  see  an  analytical  focus  on  supply  chains  and  critical  raw 
materials  that  goes  beyond  the  mere  import  of  green  molecules  and  includes  sustainability, 
labour law, circular economy and waste management aspects. Many respondents also wanted 
to see strong cyber security measures included. 

Some stakeholders  foresaw a stronger role for nuclear as a low carbon energy source in the 
strategy.  Comments  emphasized  the  export  potential  and  the  EU’s  mastery  of  the  entire 
nuclear  value  chain  or  the  importance  of  nuclear  energy  for  the  local  hydrogen  production. 
Geopolitical  challenges  in  relation  to  uranium  imports,  nuclear  safety  standards  and  the 
unsolved question on waste management were also addressed. 

Trade in clean energies 

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Several respondents wanted to see positive employment effects from the green tech industry 
more  emphasized  in  the  text.  Others  wanted  to  get  more  details  about  the  link  between  the 
energy strategy and industrial policy. Several respondents emphasized the importance of the 
rule  of  law  and  planning  stability  for  investment  decisions  in  third  countries.  Others 
associated  either  advantages  or  disadvantages  with  long-term  contracts  versus  spot  market 
solutions.  Many  respondents  wanted  to  see  the  promotion  of  stable  regulatory  frameworks 
abroad  and  of  further  trade  integration.  Some  saw  energy  rather  as  a  ‘service  than  a 
commodity’. Others raised issues in relation to advantages and disadvantages of green value 
chains versus local sourcing approaches (e.g. export of renewable hydrogen versus local steel 
production with green hydrogen). 

Most respondents saw the creation of a future global market on hydrogen as central part of the 
strategy.  Whereas  some  only  wanted  to  see  a  reference  to  renewable  hydrogen,  others 
advocated also including hydrogen from other sources. Most respondents agreed on the need 
for  renewable  hydrogen  imports  from  various  third  countries,  including  the  EU’s 
neighbourhood. One respondent suggested that the EU’s local hydrogen production would be 
sufficient to respond to the increasing demand. Many stakeholders saw the need for a strong 
regulatory  framework  and  a  global  hydrogen  market  with  transparent  market  principles. 
Others  cautioned  that  some  partner  countries  or  regions  might  perceive  hydrogen  import 
agreements  as  green  ‘neo-colonialism’.  Some  highlighted  in  this  context  the  importance  of 
sharing part of the value chain with the hydrogen producing countries (e.g. contributing to the 
establishment  of  a  local  steel  or  cement  industry)  or  of  sharing  green  technologies.  Others 
questioned  the  efficiency  of  transporting  hydrogen  over  longer  distances.  Some  called  for 
particular  attention  to  the  local  availability  of  sufficient  input  sources  (e.g.  renewables)  for 
giving  priority  to  domestic  consumption  purposes  so  that  partner  countries  could  first  meet 
their  own  commitments  under  the  Paris  Agreement.  Some  respondents  identified  water  as 
next  fault  line  for  the  hydrogen  production,  which  is  not  always  available  in  sufficient 
quantities, for instance in many developing countries (i.e. energy-water nexus). 

As  regards  investment  and  financial  instruments,  stakeholders  referred  to  the  following 
elements:  finance-based  instruments  like  the  EU’s  Emission  Trading  System  (ETS)  system, 
the Carbon Border Adjustment Mechanism (CBAM) or Green Bonds; the possible impact of 
the  EU’s  taxonomy  initiative  on  third  countries;  a  tech  neutral  approach  on  sustainable 
finance  to  allow  for  various  low-carbon  solutions.  The  important  role  of  the  European 
Investment Bank (EIB) in the global energy transition was recognized; but many stakeholders 
cautioned  that  the  EIB  lending  power  in  third  countries  might  not  match  the  global  energy 
transition’s  investment  needs.  Several  respondents  highlighted  therefore  the  relevance  of 
blending instruments between the EU and International Financial Institutions (IFIs), as well as 
of Public Private Partnerships (PPPs) in third countries and better local  project coordination 
between EU Delegations and IFIs. Some recalled the need to better track the financial support 
that  the  EU  or  Member  States  are  making  available  to  third  countries.  Others  highlighted 
Local  Content  Requirements  (LCRs)  in  third  countries  (e.g.  South  Africa)  as  possible 
obstacles that would make it more challenging for IFIs to invest.  

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Some  stakeholders  stressed  the  need  to  build  on  existing  dialogues  with  neighbouring 
countries (e.g. Turkey, Ukraine) to prepare them for changes in trade patterns as a result from 
the EU’s energy transition (e.g. from CBAM). 

Geopolitical challenges and opportunities  

Many stakeholders emphasized geopolitical aspects  that are influencing the future European 
energy  diplomacy  initiative  and  underlined  the  need  for  the  EU  to  speak  with  one  voice  in 
international energy politics. This would require that other international players cannot ignore 
more accentuated EU positions. Possible geopolitical reactions from third countries should be 
anticipated in the strategy (e.g. shift of Russian gas deliveries from the EU to China). Others 
highlighted the ‘Global Gateway’ initiative as the EU’s geopolitical answer to the new multi-
polar world. Some suggested looking actively for cooperation synergies between the EU and 
Member States and applying a strict ‘Team Europe’ approach for the future implementation of 
the strategy. Others suggested that the EU’s soft power approach was an example to follow. 

Fostering clean energy technologies  

Many  respondents  underlined  the  importance  of  international  research  cooperation  to 
accelerate  the  global  energy  transition.  Some  suggested  that  the  EU  should  engage  in 
technology transfers. Others highlighted that this knowledge transfer would take place at the 
level  of  equals  and  that  every  country  should  gain  access  to  the  latest  technology.  Several 
respondents  highlighted  the  relevance  of  the  Joint  EU-US  methane  pledge  initiative  and  of 
further methane reduction work.  

Architecture of international clean energy cooperation 

Several respondents identified organisational challenges in international energy organisations. 
Some  suggested  extending  the  existing  Energy  Charter  Treaty  framework  to  new  energy 
carriers  like  renewable  hydrogen  or  green  electricity.  Others  suggested  adjusting  the 
International  Energy  Agency  (IEA)’s  membership  model  so  that  also  non-OECD  members 
could benefit from the Agency’s expert advice, e.g. by focusing more on regional approaches. 
Several  respondents  stressed  that  the  International  Renewable  Energy  Agency  (IRENA)’s 
toolbox  is  limited  to  renewables  only  while  certain  developing  countries  might  also  be 
interested in seeking advice on gas issues. Several respondents also  supported strengthening 
the  monitoring  capacities  of  the  international  energy  organisations  further  to  secure  the 
follow-up  on  the  initiatives  launched  at  COP-26.  Some  advocated  making  better  use  of 
international  energy  organisations,  e.g.  on  hydrogen 
existing  working  groups 
standardisation  or  offshore  wind  groups  in  the  IEA.  Some  stakeholders  underlined  the  need 
for the EU to better align the strategy with the European Green Deal and to stronger defend 
EU  positions  in  international  organisations  such  as  the  Energy  Charter  Treaty  or  at  WTO 
level. 

in 

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2.2. Call for evidence 

The Call for Evidence is a public consultation document summarising the main purpose, the 
preliminary  structure  and  preliminary  ideas  on  the  future  content  of  a  Commission 
document/proposal. 

The  Call  for  Evidence  for  the  strategy  was  online  for  public  feedback  for  four  weeks.  The 
Commission received seventeen valid contributions from two citizens, two non-governmental 
(companies,  organisations  and 
organisations  and 
associations). 

thirteen  business 

representatives 

In their comments, the two citizens suggested to incentivise a reduction of weight and engine 
power  in  vehicles  in  order  to  reduce  emissions.  They  also  suggested  accelerating  and 
strengthening cooperation with third countries, including Russia, with the view to speed up, 
increase  the  domestic  production,  and  switch  to  renewables,  including  renewable  hydrogen 
imports, for electrification of almost the whole economy. 

The two responding NGOs are a consumer association and the World Wildlife Fund (WWF). 
The Portuguese consumer organisation  called for including specific political  objectives,  e.g. 
the need to overcome energy poverty of consumers in the course of the energy transition, in 
international  relations  and  agreements.  This  also  included  the  EU’s  dependency  on  energy 
imports  and  the  impact  of  rising  energy  prices,  consumer  friendly  digitalisation  of  services, 
fostering the deployment of renewable energy and clean and sustainable mobility as  well as 
increasing  sustainable  finance.  Consumer  associations  should  also  be  consulted  on 
international activities. 

The WWF advocated a focus on global just energy transitions with the explicit integration of 
social justice matters. The WWF identified as objective for the EU to promote and encourage 
“1.5-aligned transitions internationally, meaning 2040 coal phase-out for developing countries 
and  2030  for  all  others.”  This  could  include  the  use  of  CBAM  revenues  for  supporting 
transition  in  partner  countries,  a  global  carbon  pricing  mechanism,  an  EU  action  plan  to 
increase  international  climate  finance  contributions  based  on  the  Sustainable  Development 
Goals, a focus on sustainable energy sources doing no significant harm and energy efficiency 
and  capacity  building  with  the  view  to  help  partner  countries  to  develop  encompassing  just 
transition  strategies.  The  WWF  considers  the  EU-South  Africa  Just  Energy  Transition 
Partnership a positive role model in this regard. 

Out of the remaining thirteen reactions from business representatives, four entities took also 
part in the targeted consultation process. Therefore, the present synopsis report covered their 
contributions already under chapter 2.1. 

The comments of the remaining nine respondents focused on the following: 

  a comprehensive policy approach: EU leadership on decarbonization at international level; 
combining  cooperation  towards  decarbonization  with  the  development  of  a  global 
sustainable economy, including regulatory convergence in the energy field across different 
jurisdictions;    following  a  pragmatic  energy  diplomacy  with  regard  to  securing  the 

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resources  necessary  for  the  EU’s  own  decarbonisation;  developing  a  sustainable 
industrialization and fostering access to energy in third countries  where still needed, e.g. 
in Sub-Saharan Africa. 

 

  assisting  and  accelerating  decarbonisation  efforts  in  regions  outside  of  Europe,  also  in 
view  of  reinforcing  overall  geopolitical  stability,  prosperity  and  peace  and  supporting  a 
cost efficient implementation of the Paris Agreement and UN-SDGs. The need to combine 
resilience  of  infrastructure,  cybersecurity,  impact  on  environment  and  health  were 
mentioned in several contributions. 
the opportunities of the EU to pro-actively offer its experience by putting in place internal 
energy markets, electrification, renewable energy and energy efficiency in third countries. 
This  also  includes  cooperation  on  necessary  research  and  innovation  and  the  export  of 
green  EU  technology,  while  being  technology-open  and  to  include  also  the  construction 
and food sectors. 
the future role of renewable hydrogen and the need for developing international hydrogen 
value chains, in order to complement domestic green hydrogen production. The Hydrogen 
Global  Initiative  is  seen  as  possible  cooperation  instrument  for  providing  incentives  to 
establish rapidly a renewable hydrogen market. Future-proof infrastructure within the EU 
and  with  its  neighbours,  including  storage  capacities,  should  support  transporting 
hydrogen in intra-EU pipeline systems in the long-term. 

 

  striving for convergence of global carbon pricing policies based on the Paris Agreement 

and COP 26. 

  ensuring  consistent  EU  climate  and  trade  policy  while  taking  into  account  sustainable 
development objectives aligned to the Global Gateway policies. All energy imports should 
comply with the EU 2030 & 2050 objectives. 

  promoting coherent sustainable finance at international level. 
  a  perceived  increasing  role  of  the  Euro  Mediterranean  Region  and  the  Union  for  the 
Mediterranean  Gas  Platform  to  be  used  for  supporting  countries  to  accomplish  their 
energy transition,  sound public-private cooperation, and to help traditional gas exporters 
in  its  transition  away  from  fossil  fuels  and  become  a  supplier  of  renewable  and  low-
carbon energy to the EU. 

  using the example of the G-PST - Global Power System Transformation Consortium as a 
successful and comprehensive global cooperation instrument in the power system sector. 
  partnerships between the EU and international organizations active in the energy sphere, 
notably  the  IEA  and  IRENA  that  should  be  oriented  towards  creating  synergies  and 
leveraging multilateral fora. 

3. Inclusion  of  the  stakeholder  consultation  results 

in  the 

Communication from the Commission 

The  European  Commission  and  the  European  External  Action  Service  have  analysed  and 
taken into account, to the extent possible, the views of the stakeholders, including under the 
most recent political circumstances. 

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Following the overall endorsement by stakeholders, the strategy focused initially on two main 
objectives,  namely  to  de-carbonise  the  EU’s  energy  sector  and  to  lead  by  example  on  the 
global  energy  transition.  Two  new  objectives  arose  after  the  consultation’s  conclusion  in 
addition  as  a  consequence  of  the  war  in  Ukraine,  namely  diversifying  Europe’s  fossil  fuel 
imports away from Russia and supporting partners in our neighbourhood most affected by the 
impacts of the energy supply crisis. 

In  light  of  this,  it  was  decided  to  still  accelerate  the  energy  transition  under  the  European 
Green  Deal  in  response  to  the  war  in  Ukraine,  whilst  also  addressing  short-term 
diversification  and  energy  supply  challenges.  The  decarbonisation  of  the  global  energy 
systems will eventually decrease energy import dependencies, increase energy resilience and 
help  undergoing  a  socially  fair  transition  and  help  achieving  the  climate  targets  under  the 
Paris Agreement. 

Many  suggestions  on  specific  thematic  sub-sectors  such  as  the  creation  of  an  international 
hydrogen  market,  follow-up  on  the  methane  pledge  launched  at  COP26  or  on  explicit 
geographical  focus  such  as  the  European  Neighbourhood  or  Africa  will  trigger  concrete 
actions the EU and its Member S is ready to carry out with interested partners. 

Finally,  the  call  for  maintaining  but  streamlining  the  multinational  approach  for  energy 
cooperation  in  the  various  international  fora  has  also  found  its  way  into  the  strategy.  It 
advocates  cooperation  between  various  international  energy  organisations  and  promotes 
coherence and complementarity, while seeking to minimise overlaps. 

Due to the invasion of Ukraine by the Russian Federation and its political consequences, the 
European  Commission  and  the  High  Representative  of  the  European  Union  for  Foreign 
Affairs  and  Security  Policy  adapted  the  focus  of  the  strategy  in  order  to  complement  the 
‘REPowerEU’  Implementation  Communication3  which  is  published  on  the  same  day.  The 
strategy’s main political  message is that  the EU  has to accelerate the energy transition  even 
more and has to diversify away from Russian energy sources faster. The EU remains firmly 
committed  to  its  climate  goals  and  sees  an  accelerated  energy  transition  as  the  main 
instrument  for  benefitting  in  the  long-term  from  increased  energy  security  and  affordable 
energy prices. 

3 Add title  

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