Recommendation for a Council decision authorising to open negotiations for individual Strategic Partnership Agreements with each of the six GCC countries (Bahrain, Kuwait, Oman, Qatar, Saudi-Arabia and United Arab Emirates).
Date: 2024-09-02
Institutions: European Commission, European External Action Service
Subjects: common commercial policy, common security and defence policy



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CALL FOR EVIDENCE


FOR AN INITIATIVE (without an impact assessment)






This document aims to inform the public and stakeholders about the Commission’s work, so they can provide feedback and participate effectively in consultation activities.


We ask these groups to provide views on the Commission’s understanding of the problem and possible solutions, and to give us any relevant information they may have. 






Title of the initiative




EU–Gulf relations – bilateral strategic partnership agreements (authorisation to open negotiations) 






Lead DG – responsible unit 




EEAS – MENA.4 / COM DG TRADE – E.2






Likely Type of initiative




Recommendation for a Council Decision authorising the opening of negotiations






Indicative Timing




Q4-2024






Additional Information




– 






This document is for information purposes only. It does not prejudge the final decision of the Commission on whether this initiative will be pursued or on its final content. All elements of the initiative described by this document, including its timing, are subject to change.









A. Political context, problem definition and subsidiarity check






Political context 






The Gulf region is of strategic importance for the EU. Its security, stability and prosperity bear direct consequences for Europe. There are convincing arguments for stronger cooperation between the EU and the Gulf countries and for the EU's intensified engagement with the region. The EU seeks energy independence and needs to address climate change, while ensuring its competitiveness by seizing strategic trade and investment opportunities, against the backdrop of common security challenges that both the EU and the Gulf countries face. In an ever-more multipolar international environment, facilitating alignment of positions in multilateral forums is of common interest to both parties.


Following the May 2022 EU Joint Communication on a Strategic Partnership with the Gulf and the Council Conclusions of June 2022 that endorsed it, the EU embarked on a path of strengthening and deepening its relations, both bilaterally with the Gulf countries and institutionally with the Gulf Cooperation Council (GCC).


Part of the EU’s renewed strategic policy framework is the possibility to negotiate partnership agreements with individual GCC Member States. Such agreements with Bahrain, Kuwait, Oman, Qatar, Saudi Arabia and the United Arab Emirates can provide a solid, comprehensive and legally binding framework for institutional engagement that would allow for more effective and future-oriented cooperation. 






Problem the initiative aims to tackle






EU–Gulf relations are currently governed by the 1989 EU–Gulf Cooperation Council (GCC) Cooperation Agreement and the non-legally binding Cooperation Arrangements between the European External Action Service and the respective foreign ministries of the six GCC countries. Negotiations between the EU and the GCC for a regional free trade agreement have been stalled since 2008. In 2021, the Commission received a new negotiating mandate from the Council, but negotiations have not yet resumed.


For more effective and future-proof cooperation to achieve the EU’s strategic ambitions and interests vis-à vis the Gulf region, there is a need to build on the current institutional setup and to revitalise cooperation through a more comprehensive legal framework. A bilateral framework for cooperation with each of the six GCC countries would provide the umbrella for the existing engagement and open new areas of cooperation. It would also send a strong signal of commitment to the partnership and strengthen the EU’s role as a privileged partner of the Gulf countries. Bilateral agreements also have the potential to strengthen engagement on specific issues. This will include dedicated trade parts covering trade- and investment-related issues that could strengthen bilateral trade and investment cooperation. The Gulf countries themselves have repeatedly expressed an interest for a stronger legal basis to advance cooperation with the EU. 






Basis for EU action (legal basis and subsidiarity check)






Legal basis






Depending on the results of the preparatory process, negotiations should be opened and carried out on the basis of Article 218(3) and (4) of the Treaty on the Functioning of the European Union.






Practical need for EU action






The agreements are intended to cover matters of EU competence and to strengthen political dialogue and cooperation between the EU and the six Gulf Cooperation Council countries (Bahrain, Kuwait, Oman, Qatar, Saudi Arabia, and the United Arab Emirates). Action at EU level is warranted as it would ensure a coherent approach to the region, in complementarity with Member States’ existing engagement with the six countries.






B. What does the initiative aim to achieve and how






With the proposed initiative, the EU aims to update our current relations and establish a comprehensive, legally binding frameworkand for its bilateral relationship with Bahrain, Kuwait, Oman, Qatar, Saudi Arabia and the United Arab Emirates. This would be expected to:


-consolidate the EU’s position as a key partner of the Gulf countries and safeguard its geostrategic interests in the region;


-enhance relations with the Gulf countries by strengthening existing cooperation in areas such as trade and investment, development cooperation, humanitarian assistance and transport, and by expanding cooperation to new areas such as the triple planetary crises of climate, biodiversity loss and pollution, the green and digital transitions, renewable energy, raw materials, research, innovation, artificial intelligence, space, education, youth, sport and culture;


-promote overall EU interests and protect human rights, fundamental freedoms, democratic principles and the rule of law;


-enhance trade and investment by improving access for European companies and creating a more favourable business environment;


-advance connectivity in line with the EU’s Global Gateway, including the India-Middle East-Europe Economic Corridor (IMEC);


-enhance cooperation on partnership for a green and just transition and sustainable energy security;


-promote regional and global security, including by enhancing political dialogues, coordination and operational engagement on issues such as defence, maritime security, counterterrorism and the prevention of radicalisation, cybersecurity, organised crime, money laundering, asset recovery and drugs, and disaster preparedness and response.


To achieve this, the agreements are expected to include:


-clauses on issues such as human rights, democracy and rule of law, cooperation in multilateral forums, countering proliferation of weapons of mass destruction, the fight against impunity and countering terrorism (these issues underpin EU foreign policy and its role as a value-based actor on the international scene);


-commitments to strengthening cooperation in multilateral frameworks, particularly on climate change and the environment and on regional and global security;


-advanced trade provisions, covering most areas of trade relations between the EU and the six Gulf Cooperation Council members;


-chapters on sectoral cooperation in areas of mutual interest and in line with the EU’s political priorities vis-à-vis the region.







Likely impacts






To counter any potential adverse social, economic and environmental impacts, the agreements should include strong elements on: (i) the promotion and protection of democratic principles, the rule of law and good governance, human rights and fundamental freedoms; (ii) effective multilateralism; (iii) cooperation in countering the proliferation of weapons of mass destruction; and (iv) should also include provisions to promote sustainable development and the fight against climate change. These provisions would be accompanied by continued and close political cooperation on these matters.






Future monitoring






The agreements will establish the bodies responsible for regular monitoring of the agreements’ implementation. Sectoral sub-committees will play a central role, but monitoring will also take place in the meetings of the Joint Committee (senior officials’ level) and Joint Council (ministerial level).






C. Better regulation






Impact assessment






At this stage, no impact assessment is required for this type of initiative, as it builds on already existing bilateral engagement. In addition, given the agreements’ cross-sectoral nature, it would be difficult to identify their impact already at the outset. 






Consultation strategy






Publication of this call for evidence will give civil society, academia, think tanks and other stakeholders the opportunity to express their views, expectations and concerns. Beyond that, no further public or targeted consultations are envisaged. EU Member States and the European Parliament will be consulted both formally and informally in accordance with established practice for this type of agreement.






Why we are consulting?






The consultation will highlight the EU’s intention to strengthen its bilateral engagement with the six Gulf Cooperation Council countries by establishing comprehensive legally binding bilateral frameworks. In parallel, the consultation will gather views and inputs from stakeholders on the initiative’s objectives, scope and substance.






Target audience






The main stakeholders (beyond the interested general public) are civil society organisations engaged in the Gulf, academia and businesses.