REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 2023 Annual Report on the implementation of the European Union's External Action Instruments in 2022
Date: 2023-11-21
Institutions: Directorate-General for International Partnerships, European Commission
Subjects: EU environmental policy, EU migration policy, Russo-Ukrainian issue, activity report, common foreign and security policy, digitisation, human development, humanitarian aid, international cooperation, peacekeeping, sustainable development

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  EN 

   EUROPEAN COMMISSION  Brussels, 21.11.2023  COM(2023) 717 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 2023 Annual Report               on the implementation of the European Union's External Action Instruments        in 2022 {SWD(2023) 357 final}  
 
 
Table of Contents 
GLOBAL COMMITMENTS ........................................................................................................................ 1 

Introduction ........................................................................................................................................ 1 

The EU response to Russia’s war of aggression against Ukraine ........................................................ 2 

EU: a strong global actor ..................................................................................................................... 3 

Global Gateway ................................................................................................................................... 4 

Fostering sustainable development .................................................................................................... 5 

GLOBAL PRIORITIES ................................................................................................................................. 5 

Human development .......................................................................................................................... 5 

Green Deal .......................................................................................................................................... 6 

Digitalisation, science, technology and innovation ............................................................................ 7 

Sustainable growth and jobs ............................................................................................................... 8 

Migration and forced displacement ................................................................................................... 8 

Governance, peace, security and human rights ................................................................................. 9 

GLOBAL REACH........................................................................................................................................ 9 

Sub-Saharan Africa .............................................................................................................................. 9 

Asia and the Pacific ............................................................................................................................. 9 

The Americas and the Caribbean ...................................................................................................... 10 

European Neighbourhood ................................................................................................................ 11 

Western Balkans and Türkiye ........................................................................................................... 12 

Overseas countries and territories (OCTs) ........................................................................................ 12 

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GLOBAL COMMITMENTS 

Introduction 

In 2022, as the world continued to recover from the COVID-19 pandemic, the international community 
had to face a new crisis with Russia’s war of aggression against Ukraine and its consequences. Russia’s 
aggression  created  a  major  humanitarian  emergency,  an  increase  in  global  food  prices  further 
exacerbating global food insecurity, and a prolonged energy crisis.  

The EU, through its external action instruments and international partnerships, responded to the war’s 
impact by stepping up its political, humanitarian and financial support to Ukraine and neighbouring 
countries, while also strengthening its support to other partners, especially the least developed and 
most vulnerable. 

This  report  outlines  key  elements  in  the  EU’s  financial  support  for  international  partnerships, 
humanitarian aid, foreign policy and enlargement in 2022. Under the multiannual financial framework 
for 2021-2027, a single instrument, the Neighbourhood, Development and International Cooperation 
integrates  most  former  external  financing 
Instrument-Global  Europe  (NDICI-Global  Europe), 
instruments and is complemented by a few targeted instruments such as humanitarian aid and the 
Instrument for Pre-accession Assistance (IPA III) 1. 

2022 saw the start of the implementation of the EU’s Global Gateway strategy2 to boost sustainable 
connectivity  through  infrastructure  investment  around  the world  in  five  priority  areas,  based on  a 
‘Team  Europe’  approach.3  Under  this  strategy,  European  and  African  Unions  adopted  the  Africa-
Europe investment package4. 

As part of Global Gateway, the EU continued to implement Economic and Investment Plans for the 
Neighbourhood  and  enlargement  regions,  focused  on  small  and  medium-sized  companies  and  the 
green and digital transition in the Eastern Partnership region, and on green transition, climate change 
resilience, connectivity and support for the private sector in the Southern Neighbourhood. 

The  EU  continued  to  provide  humanitarian  aid  to  alleviate  the  suffering  of  millions  of  the  most 
vulnerable people across the  world. In 2022, the  EU set up the  European Humanitarian Response 
Capacity  to  step up immediate  capacity for  humanitarian response to sudden natural and human-
induced disasters. 

The EU’s enlargement assistance supported rural development and investment in key areas such as 
transport,  energy  security,  and  the  digital  and  green  transitions.  In  June,  the  European  Council 
recognised that the future of Ukraine, Moldova and Georgia lies within the EU, and granted candidate 
status to Ukraine and Moldova.  

1 For details, see the Staff Working Document part I, Introduction, accompanying this Annual Report. 
2 https://international-partnerships.ec.europa.eu/policies/global-gateway_en 
3 Combining resources of the EU with those of EU Member States and European development finance 
institutions. 
4 See p.4 

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The  EU  continued  its  support  for  democratisation  and  human  rights,  deploying  six  election 
observation missions (Colombia, Kenya, Lebanon, Lesotho, São Tomé and Príncipe and Timor Leste) 
and conducting follow-up missions in eight countries. 

The  EU  reaffirmed  its  commitment  to  global  security,  and  the  European  Peace  Facility  supported 
peace in partner countries and regions such as Mozambique, Niger, Nigeria, Somalia, Moldova and 
the Western Balkans.  

The EU continued to support countries in overcoming the consequences of the COVID-19 pandemic 
and launched a new global health strategy5 to improve global health security and deliver better health 
for  all.  The  EU  also  responded  to  other  localised  epidemics,  such  as  the  new  Ebola  and  cholera 
outbreaks and the monkeypox emergency. 

In 2022, EU and Organisation of African, Caribbean and Pacific States (OACPS) advanced towards the 
signature of the ‘post-Cotonou’ Agreement6. In the interim, the Cotonou Partnership Agreement was 
extended to mid-2023.  

The EU response to Russia’s war of aggression against Ukraine 

The  EU’s  response  to  Russia’s  war  of  aggression  against  Ukraine  was  united,  determined,  and 
immediate. The 27 Member States and their partners around the world condemned the unprovoked 
and unjustified war of aggression, acting swiftly to isolate Russia politically and economically. The EU 
also condemned the reported violations of international humanitarian law. 

Demonstrating  its  unwavering  backing  for  Ukraine,  the  EU  stepped  up  political,  humanitarian,  and 
financial support for the country. During 2022, in close coordination with the G7 and other partners, 
the EU adopted nine packages of unprecedented sanctions against persons and entities responsible 
for  the  invasion,  targeting  key  Russian  financial,  energy  and  transport  sectors  and  state-owned 
enterprises, and resulting in about EUR 24.1 billion worth of assets frozen in the EU.  

The Temporary Protection Directive was activated for the first time to provide immediate protection 
to  almost  4 million  people  forced  to  flee  Ukraine  (in  addition  to  over  6.6 million  displaced  within 
Ukraine itself). Human trafficking was largely prevented by the implementation of an EU common anti-
trafficking plan to protect those arriving in the EU. 

Taking  a  ‘Team  Europe’  approach,  the  EU,  its  Member  States  and  financial  institutions  mobilised 
EUR 18.9  billion7  in  financial  assistance,  budget  support  and  humanitarian  aid.  EUR 3.1 billion  in 
military support was also mobilised through the European Peace Facility and an EU military assistance 
mission for the Ukrainian armed forces was set up with a budget of over EUR 100 million. Following 
Ukraine’s activation of the EU Civil Protection Mechanism in February, more than 80 000 tonnes of in-
kind assistance were delivered in 2022, worth an estimated EUR 502 million. 

EUR 330 million in grant funding supported emergency response in fields such as housing and critical 
infrastructure repairs, including under the EU-Ukraine Solidarity Lanes, resilient digital transformation 

5 https://health.ec.europa.eu/internationalcooperation/global-health_en 
6 https://international-partnerships.ec.europa.eu/policies/european-development-policy/acp-eu-
partnership_en 
7 Excluding the share of EBRD support not directly covered by EU guarantees. 

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and  cybersecurity,  and  countering  disinformation.  Other  EU  programmes,  worth  nearly 
EUR 200 million, were also repurposed to address the war’s consequences.  

Total disbursements of EU assistance amounted to EUR 10.1 billion8, of which EUR 7.2 billion in macro-
financial assistance and EUR 686 million in budget support.  

Nuclear safety was a major concern due to Russia’s irresponsible behaviour in and around Ukraine’s 
nuclear facilities. The Commission mobilised the European Instrument for International Nuclear Safety 
Cooperation to urgently address the destruction caused, particularly in the Chernobyl exclusion zone. 
EU  support  included  EUR 5 million  for  bilateral  assistance  to  restore  monitoring  capabilities  and  a 
EUR 5 million contribution to the International Chernobyl Cooperation Account for the reconstruction 
of  nuclear-safety-related  infrastructure.  An  additional  EUR 3.4 million  supported  the  International 
Atomic Energy Agency, including their presence at critical nuclear sites in Ukraine.  

The Russian blockade of Ukrainian exports and destruction of crops intensified the global food crisis. 
The number of people acutely food-insecure reached a record level of around 258 million in 20229. 

Using a comprehensive ‘Team Europe’ approach, the EU stepped up its support for food security and 
supported  the  most  affected  countries  in  Africa,  the  Middle  East,  Caribbean  and  Pacific,  including 
through the facilitation of Ukrainian exports via the EU-Ukraine Solidarity Lanes. This unified response 
to global food insecurity should mobilise around EUR 18 billion in 2021-2024, of which EUR 8.3 billion 
from the EU Institutions and around EUR 9.6 billion from Member States. In 2022, the EU Institutions 
disbursed  around  EUR 2.6 billion  to  fight  global  food  insecurity,  including  around  EUR 1 billion  in 
humanitarian food assistance10. 

The EU also stepped-up efforts to address global fertiliser shortages highlighted in the Communication 
on Fertilisers published in November11.  

EU: a strong global actor 

In a year of increasing uncertainty, the EU remained a driving force for multilateralism and an effective 
responder  to  global  challenges,  pursuing  an  ambitious  Neighbourhood  policy,  promoting  solidarity 
and developing comprehensive partnerships to secure and promote peace, stability, democracy and 
human rights.  

EU  Member  States  also  reaffirmed  their  commitment  to  take  greater  responsibility  for  European 
security and defence, in close cooperation with international partners, to protect common interests 
and values. 

8 Without taking into account repurposing toward conflict-related actions. 
9 https://www.fsinplatform.org/global-report-food-crises-2023  
10 This amount includes humanitarian assistance for food, nutrition and livelihood support, as well as 50 % of 
the humanitarian multi-purpose cash programmes (percentage of multi-purpose cash transfers estimated to be 
spent on food items, based on a study conducted by the Commission's Directorate-General for European Civil 
Protection and Humanitarian Aid Operations (DG ECHO) in 2023). 
11 COM(2022) 590 final/2 of 9 November 2022.  

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The  EU  and  its  27  Member  States,  in  a  ‘Team  Europe’  approach,  collectively  remain  the  largest 
provider of official development assistance (ODA) with EUR 92.8 billion in 202212, accounting for 43 % 
of global ODA13 (representing 0.59 % of gross national income). 

The EU and its Member States stepped up assistance to partner countries, making sure that support 
for Ukraine does not come at the expense of the rest of the world.  

The  first  EU-United  Nations  (UN)  High-Level  Dialogue  led  by  President  von  der  Leyen  and  UN 
Secretary-General Guterres took place in July. It confirmed our shared common objectives and the 
value of working together to address global challenges. 

The EU mobilised EUR 2.6 billion in humanitarian aid to help address the pressing needs of affected 
populations around the world. The EU, Member States, EIB and EBRD, in a ‘Team Europe’ approach, 
remain a key global humanitarian donor, including to ‘forgotten emergencies’ like the Sahel famine. 

The  EU  and  its  Member  States  continued  to  lead  on  international  COVID-19  solidarity  with 
502.2 million vaccine doses shared with partner countries. Of these, 422 million doses were shared 
through COVAX and 80.2 million doses bilaterally.  

Implementation of the Global Gateway initiative on manufacturing and access to vaccines, medicines 
and health technologies in Africa progressed quickly and an initiative to support similar efforts in Latin 
America and the Caribbean was announced.  

The  EU  and  its  Member  States  also  continued  to  lead  global  efforts  to  tackle  climate  change  and 
environmental  challenges,  and  the  EU  remains  the  world’s  largest  provider  of  public  international 
climate finance with EUR 5.340 billion over the 2021-2022 period. 

Global Gateway 

Throughout 2022, the Commission, working closely with other actors in a ‘Team Europe’ approach, 
continued  to  implement  the  Global  Gateway  strategy14  with  the  launch  of  major  Global  Gateway 
investment packages and Team Europe initiatives. 

The first meeting of the Global Gateway Board, took place on 11 December, chaired by President von 
der Leyen and bringing together Member States’ Ministers of Foreign Affairs.  

As  an  important  step  towards  mobilising  the  planned  EUR 300 billion  in  investment  by  2027,  the 
Commission signed a guarantee agreement worth EUR 26.725 billion with the European Investment 
Bank for public investment under the European Fund for Sustainable Development Plus (EFSD+). In 
addition, the Commission allocated EUR 8.45 billion15 in financial guarantees covering private sector 
investments assigned under EFSD+ to support 56 proposed investment programmes in the Western 
Balkans and Türkiye, in the Neighbourhood regions and Sub-Saharan Africa, Latin American, Asia and 

12 Based on preliminary 2022 data from OECD, published in spring 2023. 
13 Global ODA is defined here as including ODA reported by the EU collective and all other donor countries. 
14 https://international-partnerships.ec.europa.eu/policies/global-gateway_en 
15  The  Directorate-General  for  International  Partnerships  (DG  INTPA)  allocated  EUR 6.05 billion  and  the 
Directorate-General  for  European  Neighbourhood  Policy  and  Enlargement  Negotiations  (DG  NEAR) 
EUR 2.4 billion. 

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the  Pacific.  These  private-sector  guarantees  could  generate 
EUR 67 billion.  

investment  worth  more  than 

Key investments in this first year of implementation include boosting digital connectivity between the 
EU and its partners, increasing renewable energy production and energy security of supply, access to 
finance for small and medium-sized enterprises, and expanding access to and manufacturing capacity 
for vaccines, medicines and health technologies. 

As the first deliverable of Global Gateway, the sixth EU-African Union (AU) Summit on 17-18 February 
announced  an  Africa-Europe  investment  package,  that  will  mobilise  investment  worth  at  least 
EUR 150 billion by 2027, including EUR 28 billion in grants.  

In the Neighbourhood and enlargement regions, three regional Economic and Investment Plans are 
helping  to  implement  Global  Gateway  with  84 flagship  projects  mobilising  up  to  EUR 77 billion  of 
investment by 2027. Large-scale infrastructure projects are implemented across the Western Balkans 
and  the  Eastern  and  Southern  Neighbourhoods,  such  as  the  railway  corridor  VIII  between  North 
Macedonia and Bulgaria, the Black Sea undersea electricity cable between Georgia and Romania, and 
the Medusa submarine optical fibre cable connecting Northern Africa with Spain, France, Italy, Cyprus 
and Portugal.  

Fostering sustainable development  

The EU’s priorities for development actions – human development; Green Deal; sustainable growth 
and decent jobs; digitalisation; inequalities, migration; and governance, peace and security – support 
international partners to achieve the UN Sustainable Development Goals. 

The EU and its Member States consolidated their commitment to achieving them including through 
the roll-out of the Global Gateway strategy, which contributes to all Sustainable Development Goals 
through its investment priorities. 

In 2022 the Commission actively integrated the Sustainable Development Goals into the EU’s Better 
Regulation Framework16. 

GLOBAL PRIORITIES 

Human development 

Unprecedented challenges, including conflict, climate change, health pandemics and the silent global 
crisis  in  education,  have  reversed  progress  on  human  development  and  increased  inequalities  in 
recent years. In 2022, the EU redoubled efforts in its various fields of action. 

The COVID-19 pandemic highlighted the need for better prevention, preparedness and response to 
cope with future health crises. A new EU global health strategy17 was launched on 30 November, as 
part  of  the  Global  Gateway  strategy,  highlighting  the  importance  of  functional,  inclusive  health 
systems and the need to address health security preparedness, while improving equitable access to 

16 https://commission.europa.eu/law/law-making-process/planning-and-proposing-law/better-regulation_en 
17 https://health.ec.europa.eu/internationalcooperation/global-health_en 

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vaccines, medicines and medical technologies, and boosting the capacity to produce them. In 2022, 
the EU pledged EUR 715 million18 to the Global Fund. 

The Commission continued social protection interventions in 10 countries and, through two global 
facilities,  focused  on  systems  building,  digitalisation  and  registry,  and  specific  social  protection 
schemes for women and informal workers.  

In line with its Gender Action Plan III, the EU continued to promote gender-responsive humanitarian 
action and gender equality. It highlighted issues relating to women, peace and security in relevant 
multilateral and regional fora and in bilateral dialogues. Enhancing gender mainstreaming continued, 
also through Common Security and Defence Policy missions and operations.  

The  EU  continued  to  protect  children  and  children’s  rights  around  the  globe,  including  children  in 
armed conflicts. In doing so, it met its commitments under the EU strategy on the rights of the child 
for 2021-202419. 

Representing  over 1.8 billion individuals, young people are key agents of change,  helping to  shape 
more resilient, inclusive and prosperous societies globally. In October, the Commission adopted the 
first ever Youth Action Plan in the EU’s external relations20 to engage, empower and connect young 
people globally.  

Launched in May, the regional ‘Jobs through trade and investment’ Team Europe initiative in the 
Southern Neighbourhood supports a holistic approach to job creation by bringing together initiatives 
that link trade, investment, and entrepreneurship with job creation and human capital development. 

Education continued to be a key area in EU external relations. The EU worked towards ensuring the 
right to education for every child, including children and young people affected by conflicts, crises and 
humanitarian  emergencies.  The  EU  allocated  10  %  of  its  humanitarian  aid  budget  to  education  in 
emergency  contexts.  The  EU  was  recognised  as  a  global  champion  for  education  at  the  EU’s 
Transforming Education Summit in September. 

EU investment focused on teachers, more equitable and inclusive education systems, and on skills 
that will enable partner countries to make the most of the digital and green transitions. 

Green Deal 

At the 27th conference of the parties to the UN Framework Convention on Climate Change (UNFCCC 
COP27),  the  EU  presented  major  initiatives  to  support  partner  countries  mitigate  and  respond  to 
climate change. Together with the African Union, Denmark, Germany, France and the Netherlands, it 
launched the Team Europe initiative on climate change adaptation and resilience in Africa, bringing 
together existing and new climate change adaptation programmes worth over EUR 1 billion. 

To help phase out coal, the EU, with its G7 partners, signed Just Energy Transition Partnerships (JETP) 
with Indonesia and Vietnam and made progress on the implementation of the JETP with South Africa.  

18 For the period 2023-2025. 
19 https://commission.europa.eu/strategy-and-policy/policies/justice-and-fundamental-rights/rights-child/eu-
strategy-rights-child-and-european-child-guarantee_en 
20 https://international-partnerships.ec.europa.eu/policies/youth/youth-action-plan_en 

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With  Germany,  the  EU  also  launched  a  global  platform  for  coal  regions  to  support  just  economic 
transition through knowledge sharing and networking.  

By the end of 2022, the EU had provided 29 partner countries technical support to design, update and 
implement nationally determined contributions and National Adaptation Plans. Through its climate 
and energy dialogues, the EU engaged with the US, India, China and other major emitters, on energy 
transition policies, best practices and green technologies to accelerate the development of renewable 
energy and promote energy efficiency. 

The EU was also actively engaged in multilateral fora to push for a global energy transition aligned 
with  the  Paris  Agreement  objectives.  It  supported  the  development  of  a  global  hydrogen  market. 
Bilateral  non-binding  agreements  were  signed  in  2022  with  Ukraine,  Egypt,  Japan,  Namibia,  and 
Kazakhstan to develop the demand for renewable hydrogen or contribute to renewable energy and 
hydrogen production. 

The Biodiversity COP15 in December adopted the Kunming-Montreal Global Biodiversity Framework. 
The EU reconfirmed its commitment to providing EUR 7 billion in support of biodiversity as part of its 
external cooperation.  

The  Commission  adopted  a  new  EU  agenda  for  international  ocean  governance21  reflecting  the 
priorities set under the European Green Deal. 

The EU also stepped up its engagement with partner countries to support sustainable consumption 
and production (SCP), notably the circular economy transition, with the implementation of SWITCH 
to Green, including regional programmes in Asia, Africa, and the Mediterranean.  

The Commission launched the Africa-Europe green  energy  initiative  to increase  renewable energy 
generation capacity by 300 gigawatts and secure access to affordable, reliable, and sustainable energy. 

Following the launch of the Global Methane pledge at COP26, the EU supported the development of 
the International Methane Emission Observatory, managed by the UN environment programme, for 
detailed data collection, capacity building and methane emission reduction support actions.  

Digitalisation, science, technology and innovation 

Under  Global  Gateway,  2022  saw  major  progress  on  digital  programmes  including  in  Sub-Saharan 
Africa with the Data Flagship, the EurAfrica Gateway (international submarine cables) and Regional 
Fibre Optic Backbones in Africa (regional/cross-border terrestrial links). In addition, the first Global 
Gateway digital economy package worth EUR 820 million was launched in Nigeria by Executive Vice-
President Vestager. 

The  regional Asia and Pacific  branch of the  Digital for Development Hub (D4D Hub)  platform  was 
launched  at  the  Indo-Pacific  Forum  in  February.  The  Latin  America  and  the  Caribbean  branch  was 
established through 2022, and the Africa branch continued implement several flagships such as the 
African Union-EU D4D Hub project and IDEA.  

Progress  was  made  towards  the  launch  of  an  EU-LAC  Digital  Alliance,  supported  by  the  D4D  Hub, 
securing funding for the establishment of an EU-LAC digital policy dialogue, expansion of the BELLA 

21 JOIN/2022/28 final of 24 June 2022.  

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programme  for  digital 
implementation of a regional Copernicus programme.   

infrastructure,  creation  of  a  digital  accelerator  for  business,  and 

The second phase of the Global Monitoring for Environment and Security and Africa (GMES&Africa), 
the  most  significant  initiative  for  Earth  observation  and  global  monitoring  for  environment  and 
security collaboration between Africa and the EU, was successfully initiated. 

The  Global  Gateway  Africa-Europe  investment  package  foresees  three  flagship  initiatives  with  a 
special  focus  on  science,  technology  and  innovation  to  support  the  African  Union-EU  Innovation 
Agenda,  Regional  Centres  of  Excellence  for  the  green  transition,  and  Earth  observation  and  space 
technologies. 

Sustainable growth and jobs 

In 2022, the EU supported sustainable, inclusive growth and the creation of decent jobs in partner 
countries by facilitating the mobilisation of public and private financing. The Investing in Sustainable 
Development Report22 on implementation of the Addis Ababa Action Agenda was published. 

The  EU  expert  facility  on  employment,  labour,  and  social  protection  (SOCIEUX+)  extended  its 
operations to Western Balkans countries with EUR 10 million in funding. 

The Commission continued to explore bilateral strategic partnerships on raw materials value chains, 
notably with partners in Africa (e.g., Namibia), Latin America, Western Balkans and Central Asia (e.g. 
Kazakhstan), via Memoranda of Understanding.  

In November, the Commission concluded negotiations with the Republic of Angola on a Sustainable 
Investment Facilitation Agreement that will help attract and expand investments while mainstreaming 
environment and labour rights commitments.  

The  2022  Aid  for  Trade  Progress  Report23  confirmed  that  EU  aid  for  trade  (AfT)  helped  partner 
countries  to increase  trading capacity  and tackle  the COVID-19 pandemic. The EU and its Member 
States continue to be the main providers of global AfT. 

Migration and forced displacement 

Most migration routes into the EU saw increased numbers in 2022, particularly the central and eastern 
Mediterranean  and  the  western  Balkan  routes.  Globally,  the  number  of  forcibly  displaced  people 
reached 100 million for the  first  time,  while Russia’s war of aggression against Ukraine  resulted in 
millions of further displacements.  

Demonstrating their  joint engagement,  in December,  the  EU  and  its  Member States  launched  two 
regional  flagship  Team  Europe  initiatives  to  strengthen  migration  management,  notably  along  the 
central  and  western  Mediterranean  and  Atlantic  migration  routes.  In  December,  the  Commission 
presented an EU action plan to address challenges along the Western Balkans route. 

22  European  Commission,  Directorate-General  for  International  Partnerships,  Investing 
development:  progress 
https://data.europa.eu/doi/10.2841/156351  
23 European Commission, Directorate-General for International Partnerships, EU aid for trade : progress report 
2022, Publications Office of the European Union, 2023, https://data.europa.eu/doi/10.2841/005862 

in  sustainable 
the  European  Union,  2022, 

report  2018-2020,  Publications  Office  of 

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In 2022, a further EUR 310 million package was adopted to support the Syrian displaced population 
inside Syria and refugees and vulnerable host communities in Iraq, Jordan and Lebanon24. Together, 
the  EU  and  its  Member  States  remain  the  largest  donor  in  response  to  this  crisis.  The  Brussels  VI 
Conference on ‘Supporting the future of Syria and the region’ mobilised pledges totalling EUR 6.4 
billion. 

Governance, peace, security and human rights 

EU  action  contributed  to  a  stronger  Europe  in  the  world  by  promoting  an  integrated  approach  to 
conflicts and crises, including support for peace and resilience building, security sector reform and 
capacity building in support of development and security for development (CBDSD). 

In Afghanistan, the EU focused on preventing the collapse of the  country, mindful of the potential 
social and economic repercussions inside and outside Afghanistan. Particular attention was given to 
women’s and girls’ rights and gender equality. The Forum for Afghan Women Leaders was set up. 

The EU continued to uphold and advance human rights and democracy using its multilateral, regional 
and bilateral tools and engaging with civil society. With the Human Rights and Democracy Network 
(HRDN),  the  EU  co-organised  the  24th  EU-NGO  Human  Rights  Forum25,  which  focused  on 
accountability and justice. In addition, the EU renewed and significantly increased its support for the 
ProtectDefenders.eu mechanism, which in 2022 provided support to more than 6 500 of the most-at-
risk human rights defenders. 

In 2022, the Commission allocated EUR 170 million to Yemen, that remains one of the world’s worst 
humanitarian crises. Millions of Yemenis are displaced, destitute and malnourished.  

GLOBAL REACH 

Sub-Saharan Africa  

The sixth EU-African Union Summit adopted a joint vision for a renewed partnership, complemented 
by the Global Gateway investment package. The 11th Commission-to-Commission meeting between 
the EU and African Union was held on 28 November and covered the whole spectrum of EU-African 
Union cooperation.  

Under  the  Youth  Mobility  for  Africa  programme,  36  Erasmus+  capacity  building  projects  were 
awarded in 31 countries. 

The EU and Namibia signed a Memorandum of Understanding in November to establish a strategic 
partnership on sustainable raw materials value chains and renewable hydrogen.  

Asia and the Pacific  

The  EU  hosted  the  first  EU-ASEAN  (Association  of  Southeast  Asian  Nations)  Summit  in  Brussels  in 
December, marking 45 years of diplomatic  relations.  The event  launched  a new  EU-ASEAN energy 
dialogue to support the energy transition and the regional integration of energy systems and Global 

24 Including EUR 240 million in humanitarian aid. 
25 https://www.eeas.europa.eu/eeas/stop-impunity-%E2%80%93-road-accountability-and-justice_en 

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Gateway initiatives mobilising EUR 10 billion of investment. In the margins of the summit, partnership 
and cooperation agreements were signed with Malaysia and Thailand. EU and ASEAN also signed in 
October  the  EU-ASEAN  Comprehensive  Air  Transport  Agreement,  the  first-ever  region-to-region 
aviation agreement. 

At  the  28th  EU-Japan  Summit,  EU  and  Japan  pledged  to  cooperate  to  uphold  the  rules-based 
international order and agreed the EU’s first digital partnership. 

In September, the first EU-India Green Hydrogen Forum was organised to support public and private 
sector engagement on the development of hydrogen to decarbonise the Indian economy.  

The EU and its Member States were swift to support Pakistan following floods in June which affected 
millions of people.  

In  2022,  EU  budget  support  enabled  750 000  out-of-school  children  to  access  education  through 
25 309 learning centres in Bangladesh. 

The EU-Central Asia Connectivity Conference in Samarkand advanced regional connectivity initiatives 
and  discussed the  need to  identify  sustainable,  reliable,  and  efficient  transport,  digital  and  energy 
connections between Europe and Central Asia. The conference also announced the launch of a digital 
connectivity Global Gateway initiative26. 

The partnership between the EU and the Gulf Cooperation Council gained new momentum in 2022 
with  a  Joint  Council  session  in  February,  which  endorsed  an  ambitious  five-year  joint  action 
programme.  In  May,  the  EU  adopted  a  Joint  Communication  on  ‘A  strategic  Partnership  with  the 
Gulf’27. 

Engagement on methane emission reduction was also developed in the region through conferences 
in Turkmenistan, in the Southeast Asian region and in China. 

The Americas and the Caribbean 

On 27 October, the Foreign Ministers of Community of Latin American and Caribbean (CELAC) states 
and the EU met for the first time since 2018 in Buenos Aires.  

In December, the EU and Chile concluded the EU-Chile Advanced Framework Agreement, updating 
the existing bilateral Association Agreement.  

On 22 June, President von der Leyen and Pedro Sánchez, Prime Minister of Spain, launched a new EU-
LAC partnership on local manufacturing of vaccines, medicines and other health technologies, and on 
strengthening the resilience of health systems. 

Venezuela’s socio-economic and political crisis continued with over 14 million people estimated to be 
in need and more than 7 million Venezuelans leaving their country. The EU’s contribution to multi-
sector relief operations in Venezuela and the wider region supported around 3.1 million vulnerable 
people. 

26 https://ec.europa.eu/commission/presscorner/detail/en/IP_22_6963 
27 JOIN(2022) 13 final of 18 May 2022 

10 

 
 
 
European Neighbourhood 

In the Eastern Neighbourhood, 2022 was dominated by Russia’s war of aggression against Ukraine, 
and  a  strengthening  of  relations  with  the  EU’s  eastern  partner  countries  (Armenia,  Azerbaijan, 
Georgia, Moldova and Ukraine). The EU also maintained its increased level of support to the people 
of Belarus.  

In December, Foreign Ministers from EU and Eastern partners countries reaffirmed the relevance of 
the Eastern Partnership agenda, while acknowledging the need to adjust implementation in view of 
current events. 

The EU facilitated peace talks between Armenia and Azerbaijan and deployed a common security and 
defence policy mission to Armenia, the first for a Collective Security Treaty Organisation country. The 
EU also continued to provide humanitarian assistance to both sides.  

The Memorandum of Understanding on energy signed with Azerbaijan in July will strengthen the EU’s 
energy security and support Azerbaijan’s green transition.  

Through strong support for Belarusian civil society and independent media, the EU helped preserve 
civic engagement and free voices in the face of brutal repression by the Lukashenko regime.  

The EU provided strong support for Moldova’s resilience and stepped-up cooperation on security and 
defence  (including  cooperation  on  hybrid  threats,  cyber  security  and  fighting  disinformation  and 
assistance measures for the Moldovan armed forces under the European Peace Facility). In March, a 
High-Level  Political  and  Security  Dialogue  was  launched.  The  EU  continued  to  provide  confidence-
building measures to encourage conflict settlement efforts. 

In Georgia, the EU helped reduce the country’s vulnerability to hybrid and cyber threats and supported 
the modernisation of its defence forces via the European Peace Facility. It continued to be actively 
involved in conflict resolution efforts, for example through the work of the EU Special Representative 
for the South Caucasus and the crisis in Georgia and the EU monitoring mission.  

At the fourth EU-Southern Neighbourhood Ministerial meeting held in Barcelona on 24 November, 
the EU and its partners confirmed their commitment to strengthening Mediterranean partnership ties. 
They  also  committed  to  address  the  most  pressing  economic,  social,  environmental  and  security 
challenges, focusing on the consequences of the Russian aggression against Ukraine, especially the 
implications for energy and food security.  

In  October,  the  EU-Morocco  Green  Partnership  was  signed.  The  EUR 50 million  Énergie  Verte 
programme  aims  to  boost  Morocco’s  energy  transition,  while  the  EUR 115 million  ‘Terre  Verte’ 
programme supports sustainable development of forestry and agriculture. 

In November, the EU and Egypt stepped up their cooperation on the clean energy transition by signing 
a  Memorandum  of  Understanding  on  a  strategic  partnership  on  renewable  hydrogen.  A  trilateral 
agreement  with  Egypt  and  Israel  provides  the  framework  for  the  delivery  of  Israeli  gas  to  the  EU 
through Egypt’s liquefaction capacity. 

11 

 
 
Western Balkans and Türkiye 

In 2022, the EU remained committed to  promoting the European perspective of the region and, in 
July, opened the negotiation process with North Macedonia and Albania. It also granted candidate 
status to Bosnia and Herzegovina in December and reached an agreement on visa liberalisation for 
Kosovo28. On 6 December, the first EU-Western Balkans Summit was held in Tirana. 

The key policy framework for IPA III funds is still the Economic and Investment Plans and Green Agenda 
for the Western Balkans, implemented via the Western Balkans Investment Framework. In 2022, 40 
flagship programmes were approved, expected to leverage EUR 5.7 billion of investment. 

A major achievement in November was the swift adoption of an unprecedented EUR 1 billion energy 
support package for the Western Balkans in response to the energy crisis. 

Türkiye  hosts  the  largest  refugee  population  in  the  world.  Through  two  humanitarian  flagship 
programmes, the EU provided cash assistance to nearly 1.5 million people and supported over 800 000 
children and their families in accessing education. 

Overseas countries and territories (OCTs) 

The OCTs maintain special constitutional links with three Member States: Denmark, France and the 
Netherlands. 

The  19th  Annual  EU-OCT  Forum  was  hosted  by  New  Caledonia  on  22 November.  OCTs  play  an 
increasingly strategic role for the EU, are important EU ambassadors in their regions and bring with 
them significant assets, such as vast exclusive economic zones. 

In the Caribbean, the ‘RESEMBID’ Programme helps all OCTs in the region with resilience building, 
sustainable energy and marine biodiversity. Biodiversity work has benefited habitats in six OCTs and 
some 400 000 citizens and residents. 

28 This designation is without prejudice to positions on status and is in line with UNSCR 1244 (1999) and the ICJ 
Opinion on the Kosovo declaration of independence. 

12