COMMISSION STAFF WORKING DOCUMENT EX-ANTE EVALUATION Accompanying the document Proposal for a COUNCIL DECISION amending Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and Territories with the European Union including relations between the European Union on the one hand, and Greenland and the Kingdom of Denmark on the other
Date: 2025-09-03
Institutions: Directorate-General for International Partnerships, European Commission
Subjects: Denmark, EU financing, Greenland, cooperation policy, development aid, financial aid, multiannual financial framework, overseas countries and territories, sustainable development

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 3.9.2025  SWD(2025) 625 final  COMMISSION STAFF WORKING DOCUMENT EX-ANTE EVALUATION         Accompanying the document Proposal for a COUNCIL DECISION           amending Council Decision (EU) 2021/1764 of 5 October 2021           on the association of the Overseas Countries and Territories with the European Union including relations between the European Union on the one hand, and Greenland and the Kingdom of Denmark on the other                         {COM(2025) 599 final} - {SWD(2025) 626 final}  
 
 
MULTIANNUAL FINANCIAL FRAMEWORK   

2028 – 2034 

EU PARTNERSHIP WITH  

THE OVERSEAS COUNTRIES AND TERRITORIES  

DRAFT LEGAL PROPOSAL 

EX-ANTE EVALUATION  

Staff Working Document 

TABLE OF CONTENTS 

1.  Introduction: Political and Legal Context 
2.  Performance and EU Added Value  
3.  Lessons Learned and Challenges 
4.  ‘Single Option’ Explanation 
5.  Proposed Changes (Amendments) 

1 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
LIST OF ACRONYMS 
ACP States:  
A/MAP: 
AU: 
CBD:    
CEF: 
CRM:   
CRMA: 
DOAG:  
DRR:    
EC:  
ECF:    
EDF:    
EEC:    
EEZs:   
EFIs:    
EFSD+:  
EIB:  
EIT:  
EU:  
EUROSTAT:    
FA:  
FWC:   
GE:  
GG:  
GO Programme:  
IPA:  
LAC: 
MIP:    
MMF:   
MoU:    
MS:  
NDICI:  

African, Caribbean and Pacific States 
Annual/Multiannual Action Plan 
African Union 
Convention on Biological Diversity 
Connecting Europe Facility  
Critical Raw Materials 
Critical Raw Materials Act 
Decision on the Overseas Association, including Greenland  
Disaster Risk Reduction 
European Commission 
European Competitiveness Fund 
European Development Fund 
European Economic Community 
Exclusive Economic Zones 
External Financing Instruments 
European Fund for Sustainable Development Plus 
European Investment Bank 
European Institute of Innovation and Technology 
European Union 
Statistical Office of the European Union 
Fisheries Agreement 
Framework Contract 
Global Europe 
Global Gateway 
Green Overseas Programme 
Instrument for Pre-Accession Assistance 
Latin America and the Caribbean 
Multiannual Indicative Programme 
Multiannual Financial Framework 
Memorandum of Understanding 
Member States 
 Neighbourhood, Development and International Cooperation Instrument – 
Global Europe 
Overseas Association Decision 
Overseas Countries and Territories’ Association 
Overseas Countries and Territories 
Official Development Assistance 
Organisation for Economic Cooperation and Development 
Outermost Regions 
Prospectors & Developers Association of Canada 
Sustainable Development Goals 
Sustainable Fisheries Agreement 
Sustainable Fisheries Partnership Agreement 
Small Islands Development States 
Treaty on the Functioning of the European Union 
United Nations 
United Nations Framework Convention on Climate Change 
United Nations Ocean Conference 

OAD:  
OCTA:  
OCTs:  
ODA: 
OECD: 
OR:  
PDAC:  
SDGs:  
SFA:  
SFPA:  
SIDS:  
TFEU:  
UN:  
UNFCCC:   
UNOC:  

2 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
This ex-ante evaluation of the European Union (EU) partnership with the Overseas Countries 
and  Territories  (OCTs)  has  been  developed  in  close  alignment  with  the  orientations  of  the 
upcoming Multiannual Financial Framework (MFF)1 and in line with EU policy priorities. By 
embedding the analysis in this guiding context, the document: 

-  Outlines the main features of the EU-OCTs partnership,  
-  Elaborates on the performance of the partnership and the EU added value,  
-  Examines lessons learned and challenges,  
-  Explains a ‘single option’ for the implementation of the partnership, and 
-  Proposes recommendations for the next MFF. 

The following Chapters present a structured analysis of these dimensions. 

_____________________________________________________________________________________ 

1.  Introduction: Political and Legal Context 

The thirteen European Union (EU) Overseas Countries and Territories (OCTs)2 are all islands3, 
located  in  the Arctic,  the Atlantic,  the  Caribbean,  the  Indian  Ocean,  and  the  Pacific4,  with  a 
combined population of ca. one million people. All of them have their exclusive economic zones 
(EEZs)  that,  together, constitute  the  world's  largest  EEZ,  covering  over  15  million  square 
kilometres. 

The OCTs are associated with the EU and constitutionally linked to Denmark (Greenland), France 
(six OCTs)  and the Netherlands  (six OCTs), on  which they depend to  varying degrees  as non-
sovereign countries or territories. Most OCTs enjoy wide-ranging autonomy, covering areas such 
as economic affairs, public health, home affairs and customs. Defence and foreign affairs usually 
remain within the remit of the respective EU Member States (MS).  

The  OCTs  are  part  of  the  related  EU  MS,  but  not  part  of  the  EU  (unlike  the  EU’s  outermost 
regions5). This means that even if they are not part of the EU, they cannot be considered as third 
countries  either.  This  status  affects  the  nature  of  the  EU’s  presence  in  Greenland  and  New 
Caledonia where the Union is not represented by EU Delegations or Commission Representations, 
but by Commission Offices.  

1   Communication from the Commission|: ‘The road to the next Multiannual Financial Framework’: COM (2025) 

46 final of 11 February 2025. 

2   Following the UK’s withdrawal from the EU on 31 January 2020, twelve UK OCTs left the association with the 

EU. 

3   Except Adélie Land, one of the territories within the French Southern and Antarctic Lands (FSAL/TAAF), which 

is located in the Antarctic continent. 

4   Atlantic:  Saint  Pierre  and  Miquelon  (FR);  Indian/Southern  Oceans:  French  Southern  and  Antarctic  Lands  – 
FSAL/TAAF  (FR);  Arctic:  Greenland  (DK);  Caribbean:  Aruba,  Bonaire,  Curaçao,  Saba,  Sint  Eustatius,  Sint 
Maarten (all six NL), and Saint Barthélemy (FR); Pacific: French Polynesia, New Caledonia, Wallis and Futuna 
(FR). 

5   The EU’s outermost regions (nine islands), linked to France, Spain, and Portugal, are an integral part of the EU: 
Guadeloupe, French Guiana, Réunion, Martinique, Mayotte and Saint Martin (France), the Azores and Madeira 
(Portugal), and the Canary Islands (Spain). 

3 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Although not third countries, the OCTs do not form part of the single market and the Schengen 
area, nor are they bound by the EU’s acquis. They are subject to their own legislation in accordance 
with the respective distribution of competences with their EU MS. In areas such as human rights 
and gender equality, the OCTs’ legal frameworks are in line with the fundamental principles upheld 
by the EU. The citizens of the OCTs are EU citizens (via their citizenship of related EU MS) with 
full citizens’ rights throughout the EU6. 

The  EU  is  an  important  political,  commercial  and  cooperation  partner  for  the  OCTs.  The 
association partnership between the OCTs and the EU dates back to the Treaty of Rome (1957) 
and is enshrined in Part IV of the Treaty of the Functioning of the EU (TFEU – Articles 198 to 
204).  

According to the TFEU (Article 198):  

“The  purpose  of  association  shall  be  to  promote  the  economic  and  social  development  of  the 
countries and territories and to establish close economic relations between them and the Union as 
a whole. In accordance with the principles set out in the preamble to this Treaty, association shall 
serve primarily to  further the interests and prosperity of  the inhabitants of  these countries and 
territories in order to lead them to the economic, social and cultural development to which they 
aspire.” 

The successive Overseas Association Decisions (OADs)7 have defined a specific legal framework 
for the association partnership - reaffirming close historical, political, economic and cultural ties 
between the OCTs and the EU.  

The current legal framework is established by the Council Decision on the Overseas Association, 
including Greenland (DOAG)8. It provides a single legal basis for all the OCTs with a dedicated 
budget chapter.  

DOAG merges the former Greenland Decision9 with the last OAD10 as part of the simplification 
effort  under  the  2021-2027  Multiannual  Financial  Framework  (MFF)  to  reduce  the  number  of 
external  financing  instruments,  thereby  streamlining  their  architecture  and  performance.  The 
merge was also driven by the end of the European Development Fund (EDF) that was providing 
financing to the OCTs other than Greenland (for the bilateral envelope). Greenland has a specific 
place in DOAG, notably because of its historical ties with the EU11 and the related uniqueness of 
the partnership (see Chapter 2.1.2).  

6   The  citizens  of  the  OCTs,  except  for  those  permanently  residing  in  Greenland,  have  the  right  to  vote  in  the 

European Parliament elections. 

7   The two latest OADs: Council Decision 2001/822/EC of 2 November 2001 and Council Decision 2013/755/EU 
of 25 November 2013 (both financed under the EDF through direct contributions from EU MS). The twelve UK 
OCTs remain eligible for OADs until the closure of all ongoing programmes. Whereas Greenland was covered by 
the OAD overall legal framework, the bilateral financial cooperation with the country in the period 2007-2020 was 
governed (by Council Decision 2006/526/EC of 17 July 2006 and  Council Decision 2014/137/EU of 14 March 
2014 (both financed under the EU budget): more information in Chapter 2.1.2. 

8   Council Decision (EU) 2021/1764 of 5 October 2021. 
9   Council Decision 2014/137/EU of 14 March 2014 (financed under the EU budget). 
10   Council Decision 2013/755/EU of 25 November 2013 (financed under the EDF, through direct contributions from 

EU MS). 

11   Greenland jointed the European Economic Community in 1973 through Denmark’s membership, but it withdrew 

in 1985 (following a referendum) after securing Home Rule.  

4 

 
 
 
 
 
 
 
 
 
 
 
In line with the TFEU provisions, DOAG (Article 1) establishes (i) an association of the OCTs 
with the Union, “… which constitutes a partnership to support the OCTs’ sustainable development 
as well as to promote the values and standards of the Union in the wider world. The partners to 
the association are the Union, the OCTs and the Member States to which they are linked.” and (ii) 
a funding programme for the association for the period 2021-2027 (EUR 500 million)12. 

The general objective of DOAG (Article 3(4)) reflects the purpose of the association as defined in 
the TFEU: 

“… to promote the economic and social development of the OCTs and to establish close economic 
relations  between  them  and  the  Union  as  a  whole.  The  association  shall  pursue  this  general 
objective by enhancing the OCTs’ competitiveness, strengthening the OCTs’ resilience, reducing 
their economic and environmental vulnerability and by promoting cooperation between them and 
other partners. Furthermore, the aim of this Decision is to preserve the existing ties between the 
Union on the one hand, and Greenland and Denmark on the other, acknowledging the geostrategic 
position of Greenland in the Arctic, and to preserve existing ties between the Union and the other 
OCTs, acknowledging their geostrategic positions in the Caribbean, the Indian Ocean, the Atlantic 
and the Pacific.”  

The specific objectives of DOAG (Article 3(5)) are the following:  

“(a) to foster and support cooperation with OCTs, including in addressing their major challenges 
and reaching the SDGs, (b) to support and to cooperate with Greenland in addressing its major 
challenges  such  as  the  raising  of  education  level  and  to  contribute  to  the  capacity  of  the 
administration of Greenland to formulate and implement national policies.” 

Unlike other EU external financing instruments, DOAG has - except some general references - no 
explicit poverty reduction focus, knowing that out of the thirteen OCTs only Wallis and Futuna 
is eligible for Official Development Assistance (ODA).  

Whilst migration is part of the EU’s substantive approach to international cooperation, it is not 
mentioned as an area of collaboration under DOAG. 

DOAG  is  based  on  three  pillars:  dialogue,  trade  and  financial  cooperation.  It  provides  for  the 
institutional framework of the partnership, specifies unilateral trade preferences, and sets rules for 
effective programme implementation, to pursue the objectives of the partnership.  

DOAG consists of the 48 recitals, the body text (94 articles) and 4 Annexes: 

•  Annex I:  Union Financial Assistance 
•  Annex II:  Concept of ‘Originating Products’ and Methods of Administrative Cooperation 
•  Annex III:  Temporary Withdrawal of Preferences 
•  Annex IV:   Safeguard and Surveillance Procedures 

The  OCTs  association  (OCTA)  serves  as  a  platform  through  which  the  OCTs  promote  their 
common  positions  at  international  fora  and  coordinate  the  implementation  of  the  EU-OCTs 
partnership. The  Ministerial  Conference  is  the  highest  decision-making  authority.  It  appoints  a 
rotating Chair who is the head of the organisation and elects an Executive Committee, supported 
by the OCTA Secretariat, whose task is to manage statutory activities.  

12   DOAG – which is an association Decision - does not have a sunset clause linked to the duration of the MFF, except 

for its 2021-2027 funding programme. 

5 

 
 
 
 
 
 
 
 
 
 
 
 
 
Since 2020, OCTA has been facing significant institutional and administrative challenges. It has 
failed  to  fully  assume  its  coordination  roles  towards  the  OCTs  and,  in  that  respect,  to  develop 
productive  working  relations  with  the  EU.  In  response  to  these  challenges,  OCTA  adopted  its 
internal reform agenda in 2024, calling for greater strategic orientation and improved governance 
to ensure more accountability, efficiency, and transparency. However, its implementation timelines 
and modalities, as well as first tangible deliverables are yet to be seen and communicated by OCTA 
(as of July 2025). 

2.  Performance and EU Added Value 

The performance assessment and the added value analysis of the EU’s action in relation to the 
OCTs have used a number of sources, in particular:  

•  DOAG was part of a global mid-term evaluation of the EU External Financing Instruments 

(EFIs) in May 202413. 

•  The Annual  Reports  from  the  Commission  to  the  Council  on  the  Implementation  of  the 
Financial  Assistance  provided  to  the  OCTs14  and  the  Annual  Programme  Performance 
Statements15 include further relevant and detailed information. 

•  Some OCTs, such as Greenland16, French Polynesia17, and Saint Pierre and Miquelon18, have 
been  evaluated  using  the  Public  Expenditure  and  Financial  Accountability  (PEFA) 
methodology, which measures the performance of public finance management systems against 
internationally recognised standards.  

In addition, regular progress and monitoring reports, final implementation reports, annual reports 
provided for the budget support payment requests, as well as field visits, mission reports, and aide-
mémoires of dialogue meetings served as a useful source of information for this evaluation.  

2.1  Performance 

The  sources  mentioned  above  demonstrate  DOAG’s  consistently  high  performance  towards 
achieving the desired outcomes. In particular, they show that DOAG: 

• 

Is  on  track  to  effectively  deliver  its  objectives,  reaffirming  the  strategic  dimension  of  the 
partnership. 

•  Has  successfully  integrated  the  former  Greenland  Decision19  and  is  delivering  on  the 

partnership with Greenland. 

•  Has promoted coherence with the broader EU financing architecture. 

13   COM (2024) 208 of 15 May 2024. This evaluation consisted of both the mid-term evaluation of the EU’s External 

Financing Instruments (EFIs) of the 2021-2027 MFF and the final evaluation of the 2014-2020 MFF EFIs.  
14   COM (2022) 287 of 15 June 2022, COM (2023) 474 of 02 August 2023, COM (2024) 437 of 4 October 2024, 

COM (2025) 334 of 27 June 2025.  

15   Programme Performance Statements (Overseas Countries and Territories, including Greenland) of 2022, 2023, and 

2024: Decision on the Overseas Association, including Greenland - Performance - European Commission. 

16   Greenland 2021/AGILE REPORT/ | Public Expenditure and Financial Accountability (PEFA). 
17   French Polynesia 2022 | Public Expenditure and Financial Accountability (PEFA). 
18   St. Pierre and Miquelon 2022 /AGILE REPORT/ | Public Expenditure and Financial Accountability (PEFA). 
19   See footnote 9. 

6 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
2.1.1  DOAG  is  on  track  to  effectively  deliver  its  objectives,  reaffirming  the  strategic 

dimension of the partnership 

DOAG  has  been  meeting  its  objectives  by  providing  an  adequate  institutional  framework  for 
dialogue, promoting trade relations and ensuring effective financial cooperation, by focusing on 
actions of mutual interest to the OCTs and the EU.  

  Dialogue 

DOAG defines three types of dialogue: the OCTs-EU Forum, trilateral consultations, and working 
parties, with all involving the Commission, EU MS, and the OCTs (with OCTA representing their 
collective interests).  

The  annual  OCTs-EU  Forum  is  a  political  platform,  gathering  the  OCTs’  Presidents/Prime 
Ministers  (and  other  relevant  political  leaders),  the  EU  Commissioner  for  International 
Partnerships, and Ministers from EU MS. By ensuring high-level representation, the Forum helps 
underline the importance attached by all sides to the OCTs-EU partnership. 

Based on feedback received from the OCTs and EU MS, trilateral consultations offer an effective 
platform  for  political  and  policy  dialogue  at  technical  level  to  exchange  relevant  information, 
reflect on priority topics of mutual interest  and monitor progress in implementing DOAG. The 
focus  in  2023-2025  was  on  trade  and  trade-related  cooperation  (see  below),  policy  issues 
(including ocean governance and digital connectivity), climate finance, as well as the preparations 
of the OCTs-EU Forum and the ‘Green Overseas’ Climate Finance Conference20.  

Working  parties  can  be  organised  ad  hoc  on  specific,  demand-driven  subjects. As  many  topics 
were already covered by trilateral consultations, no working parties’ meetings were organised in 
2023-2024. 

The Commission also maintains a biannual policy dialogue with Greenland (see Chapter 2.1.2). 

The  different  types  of  dialogue  mentioned  provide  each  side  of  the  partnership  with  the  space 
needed to discuss and strengthen cooperation across the full spectrum of the OCTs-EU partnership. 
Nevertheless,  the  frequency  of  some  of  the  events,  in  particular  the  annual  OCTs-EU  Forum, 
should be reviewed to see what the most effective occurrence is to get the most out of the event.  

  Trade and Trade-related Cooperation 

DOAG trade and investment provisions promote close economic relations between the OCTs and 
the Union as a whole and demonstrate shared commitment to sustainable development. Financial 
cooperation (see below) is implemented in close complementarity with these provisions.  

The OCTs enjoy unilateral duty-free and quota-free access to the EU common market21 for all 
goods  that  meet  the  rules  of  origin  criteria  laid  down  in  DOAG.  This  includes  processed  and 
unprocessed products, raw materials, and manufactured goods. The OCTs are allowed to cumulate 
origin with the EU and with other OCTs (meaning products can be considered as originating in an 

20   The Green Overseas programme  - financed under the 11th EDF - focuses on accelerating energy transition and 

advancing climate resilience in the OCTs. The Climate Finance Conference was held in October 2024. 

21   Under Protocol 34 of the TFEU, duty-free and quota-free access to the EU market of fishery products originating 
in Greenland is subject to the conclusion of a fisheries agreement that should be “satisfactory to the Union”. 

7 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
OCT  even  if  they  contain  material  or  undergo  processing  in  other  OCTs  or  the  EU,  providing 
certain conditions are met). This is an important provision that supports regional trade integration 
and OCT’s participation in global/EU value and supply chains.  

As for trade in services, the OCTs benefit from the most favoured nation treatment, namely the 
most favourable treatment that the EU agreed with other partners in the past or will in the future. 
On the EU’s side, the OCTs grant the EU the most favourable treatment applicable to any “major 
trading economy”. 

Considering the different levels of development across the OCTs, the OCTs-EU trade relations are 
characterised by asymmetry, i.e., the EU has a less favourable access to the OCTs’ markets (for 
both goods and services), and the OCTs can adopt a series of measures (including duties and tariffs 
towards  the  EU)  to  support  their  economic  development  through  local  production  and  labour 
markets. 

DOAG  places  a  strong  emphasis  on  the  twin  transition,  encouraging  the  OCTs  to  explore 
green/blue  trade  and  investment  opportunities  in  sectors  such  as  eco-tourism,  sustainable  raw 
materials,  fisheries  and  renewable  energy  –  accompanied  by  digital  solutions.  In  this  context, 
DOAG promotes regional partnerships to help integrate the OCTs into larger regional markets, 
making their economies more resilient.  

While each OCT has a distinct economic profile, the most important trade and investment sectors 
in cooperation with the EU include: 

Fisheries and aquaculture (many OCTs have large Exclusive Economic Zones). 

• 
•  Agriculture and agro-industry (including niche products like tropical fruits and spices). 
•  Tourism services  (representing  a great  share in  the local economies, while also  generating 

demand for goods and attracting investments). 

•  Renewable  energy  and  environmental  services  (increasingly  important  in  the  context  of 

climate change). 

Eurostat data (2023) show  the OCTs-EU total  trade, worth  ca.  USD  5  billion,  has  seen a 46% 
increase since 2014. Greenland, New Caledonia and French Polynesia have the highest share in 
total trade with the EU, flagging their importance in the overall OCTs-EU trade relations. 

In addition to offering unilateral preferential market access and investment opportunities, the EU 
provides technical and financial assistance to the OCTs to help them build their export capacity, 
meet  EU  standards,  as  well  as  improve  business  environment  and  investment  climate.  This 
includes support for private sector development, investment-friendly policy framework, vocational 
training, and infrastructure improvements. 

  Financial Cooperation 

The  implementation  of  the  DOAG  financial  envelope  is  progressing  smoothly,  with  all  16 
Multiannual  Indicative  Programmes  (MIPs)  adopted  and  over  EUR  350  million  already 
programmed  (70%  of  the  total  EUR  500  million  DOAG  allocation).  The  total  amount  of 
commitments  reached  ca.  EUR  288  million  by  the  end  of  2024  (58%  of  the  total  DOAG 
allocation).  

8 

 
 
 
 
 
 
 
 
 
 
 
 
The  programmes  (bilateral/territorial,  regional  and  intra-regional)  accurately  reflect  DOAG 
objectives,  prioritising  sustainable  development  under  the  umbrella  of  the  Global  Gateway22, 
including the promotion of a green and blue economy, climate change adaptation and mitigation, 
disaster risk reduction, digital connectivity, education, food security, as well as tourism and culture. 
This  ensures  close  alignment  with  the  EU  policy  agenda,  and  key  international  frameworks, 
including  the  Paris Agreement23,  the  2030 Agenda  for  Sustainable  Development24,  the  Sendai 
Framework25, and the Global Biodiversity Framework26. 

The main modality of bilateral/territorial cooperation remains budget support, which provides a 
direct  and predictable  flow of funds to OCTs’ governments.  It reinforces ownership and aligns 
financial assistance with national development strategies and public policy objectives - with a clear 
impact on the OCTs’ legal framework. The modality has proved to effectively serve as a lever for 
reforms. For example, in New Caledonia, it has enabled the adoption of the 2023 Energy Transition 
Plan.  In  Sint  Eustatius,  it  supported  institutional  restructuring  and  development  of  a  plan  to 
strengthen government capacity in agriculture, livestock, and fisheries sectors. And in Saba, the 
EU assistance to the Energy Policy 2020-2025 supports government efforts to increase the share 
of renewable energy to 60%. 

DOAG  also  strongly  promotes  regional  cooperation  (implemented  through  a  classical  project 
approach). The three programmes for the Caribbean, the Pacific and the Indian Ocean regions are 
being developed to foster cooperation among the OCTs of the same geographical zone, sharing 
similar challenges and priorities, including in food security and marine biodiversity sectors (e.g., 
the fight against the sargassum algae in the Caribbean). The design of the regional programmes is 
based on lessons learned from previous programmes financed under the 11th EDF:  

•  PROTEGE  in  the  Pacific  has  successfully  promoted  sustainable  and  climate-resilient 

economic development, as well as best agricultural and fisheries practices among the OCTs.     

•  RESEMBID in the Caribbean has strengthened crisis and disaster management capabilities of 
the  OCTs,  enhanced  their  legislative  and  institutional  capacities  in  managing  marine 
biodiversity, as well as supported energy efficiency.   

•  RECI in the Indian Ocean has also recorded several important achievements, such as enhanced 
biosecurity, ecological restoration, and the eradication of invasive species on selected islands. 

Since  the  establishment  of  DOAG,  intra-regional  cooperation  within  the  regional  cooperation 
financial  envelope  has  been  ringfenced  to  encourage  cooperation  and  promote  win-win 
partnerships between the OCTs and their neighbouring ACP/non-ACP states and territories27, as 
well as with the EU’s outermost regions. The overarching goal is to strengthen the OCTs’ role in 
relevant  EU  regional  strategies,  in  line  with  the  priorities  of  the  Global  Gateway. This  type  of 
cooperation, which is innovative in its concept and implementation, is still under assessment (as 
of  July  2025)  and  the  work  will  continue  to  prepare  actions  under  the  corresponding  MIP,  for 
example, on digital connectivity in the Caribbean.  

22   JOIN (2021) 30 of 2 December 2021. 
23   Council Decision (EU) 2016/1841 of 5 October 2016 on the conclusion, on behalf of the European Union, of the 

“Paris Agreement” adopted under the United Nations Framework Convention on Climate Change. 

24   “Transforming  our  world:  the  2030  Agenda  for  Sustainable  Development”:  adopted  at  the  United  Nations 

Sustainable Development Summit on 25 September 2015 (ARES/70/1). 

25   “Sendai Framework for Disaster Risk Reduction (DRR)”: adopted on 18 March 2015 and endorsed by the United 

Nations General Assembly on 3 June 2015 (A/RES/69/283). 

26 “The Kunming-Montreal Global Biodiversity Framework”: adopted by the 15th conference of Parties (COP 15) to 

the Convention on Biological Diversity (CBD) on 19 December 2022. 
27   To allow the UK OCTs to participate in join projects following Brexit. 

9 

 
 
 
 
 
 
 
The available technical  assistance has been used in a targeted and effective way to support the 
design and implementation of programmes, and the organisation of dialogue meetings (e.g., the 
OCTs-EU  Forum).  Further  initiatives  include  a  DOAG  communication  campaign  ‘Partners  in 
Change’ launched in early 2024 to promote the EU-OCTs partnership; the OCTs’ Youth Network 
fostering youth engagement and dialogue; administrative support to OCTA (however, associated 
with  challenges  –  see  Chapter  3.3)  and  a  dedicated  training  programme  to  strengthen  OCTs’ 
capacity to engage in Union programmes.  

Under  the  non-allocated  fund28  (a  DOAG  reserve  for  unforeseen  circumstances,  emerging 
challenges and new initiatives) effective, ad hoc assistance has been provided to reconstruction 
efforts  in  New  Caledonia  (following  the  2024  crisis).  Further  actions  cover  an  all-OCTs 
programme  promoting  culture,  creative  industries  and  sustainable  tourism,  as  well  as  the 
contribution to a facility supporting investments in the Critical Raw Materials (CRM) sector in the 
OCTs. 

2.1.2    DOAG has successfully integrated the former Greenland Decision29 and delivers on 

the partnership with Greenland 

Since  198530,  the  EEC/EU  and  Greenland  have  built  a  long-standing  and  mutually  beneficial 
partnership, based on equality and shared values.  

Through  the  Exit Agreement31,  Greenland  obtained  an  OCT  status  as  defined  in  the  Treaties 
establishing the European Communities32 and has been covered by consecutive dedicated OADs 
(see  Chapter  1),  applicable  to  all  the  OCTs,  and  the  fisheries  agreements33.  However,  the  Exit 
Agreement specified that Greenland, while having an OCT status, would not be on the same terms 
as other OCTs and that “additional specific provisions are needed to cater for Greenland”. 

Consequently,  Greenland,  unlike  other  OCTs,  has  not  had  automatic  full  duty-  and  quota-free 
access to the EEC/EU market. The free access for fisheries products (over 90% of Greenland’s 
exports) has always been dependent on a fisheries agreement that should be “satisfactory to the 
Union” (34).  

Furthermore, until 2020, Greenland although covered by the OADs, did not benefit (unlike other 
OCTs) from respective financial cooperation under the EDF35: bilateral financing was guaranteed 

28   The  non-allocated  fund  also  includes  the  cumulative  net  reflows  stemming  from  the  OCT  Investment  Facility 
managed by the European Development Bank (EIB) under the EDF. The reflows are added as annual top-ups, from 
the moment they become available, and are designated as external assigned revenues. 

29   See footnote 9. 
30   Greenland’s withdrawal from the EEC. 
31   OJ L29, Volume 28 of 1 February 1985.  
      (https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=OJ:L:1985:029:TOC) 
32   Currently defined in Part IV (Articles 198-204) of the TFEU. 
33   The first Fisheries Agreement: FA (Council Regulation (EEC) No 223/85 of 29 January 1985) was concluded in 
1985 for an initial period of 10 years. Thereafter, it was extended for two additional six-year periods until it was 
replaced by the 2007 Sustainable Fisheries Agreement: SFA (Council Regulation (EC) 753/2007 of 28 June 2007) 
and, subsequently, by the current  Sustainable Fisheries Partnership Agreement: SFPA (Council  Decision  (EU) 
2021/2043 of 18 November 2021) of 2021 - the third most important fisheries agreement in place for the EU in 
financial  terms. All  fisheries  agreements  with  Greenland  have  been  implemented  via  successive  Fisheries 
Protocols. The current Protocol (2025-2030) can be tacitly renewed for another six-year period. 

34   See footnote 21. 
35   It refers to the bilateral envelope. Greenland still benefited from some horizontal actions financed by the EDF. 

10 

 
 
 
 
 
 
 
 
 
under the EEC/EU budget: in 1985-2006 – under the Fisheries Agreement (FA)36; and in 2007-
2020  –  under  the  Sustainable  Fisheries  Agreement  (SFA)37  and  two  consecutive  Greenland 
Decisions38. Under the current MFF, the partnership is governed and financed by DOAG and the 
Sustainable Fisheries Partnership Agreement (SFPA)39.   

DOAG  merges  the  former  Greenland  Decision  with  the  last  OAD  as  part  of  the  simplification 
effort under the 2021-2027 MFF (see Chapter 1). This set-up works well: it protects the strong 
partnership with Greenland developed over the years and contributes to EU’s strategic objectives 
in the Arctic. It also maintains relevant provisions of the former Greenland Decision, including 
strategic narrative, biannual policy dialogue and a specific financial envelope. Greenland receives 
EUR  225  million  (45%  of  the  total  DOAG  allocation),  and  possible  support  under  the 
intraregional, technical assistance and non-allocated envelopes) - the largest per capita support in 
the  OCTs.  This  allocation  reflects  previous  political  commitments  (DOAG  refers  to  the  2003 
Council Conclusions on Greenland40) and remains comparable to the reference amount under the 
two Greenland Decisions. The allocation is used for education and green growth sectors, including 
the CRM. 

Since 2007, education (along with fisheries) has been the cornerstone of the partnership. In the 
period 2007-2020, under both Greenland Decisions, it represented 100% of the financial envelope 
and  it  still  represents  90%  of  the  DOAG  allocation.  The  EU  support  has  been  crucial  for  the 
development  of  the  sector,  raising  education  levels,  improving  vocational  training,  and 
empowering young Greenlanders. The focus of the current Education Programme (budget support) 
is on further enhancing the quality, efficiency, and inclusiveness of the education system, in line 
with the Greenland’s 2024–2030 education strategy which is an integral part of the country’s long-
term development vision for sustainable growth. The objective is to support Greenland in its efforts 
to build a skilled workforce needed for developing economy (see below). 

Under DOAG, financial cooperation with Greenland evolved beyond education to new areas of 
mutual interests under the Green Growth Programme (accounting for the remaining 10% of the 
budget), including CRM, renewable energy, tourism, environmental protection, and research. The 
Programme  promotes  sustainable  value  and  supply  chains  for  more  diversified  and  resilient 
economies.  Several  key  milestones  serve  as  a  tangible  demonstration  of  the  EU's  continuous 
commitment to the partnership, including the implementation of the Sustainable Raw Materials 
Roadmap41, and the support provided to the new Greenland’s Plan for Energy and the Arctic Hub42. 

The visit of the European Commission President Ursula von der Leyen to Greenland in March 
2024, culminating  in  the inauguration of the Commission  Office in  Nuuk,  further strengthened 
momentum in developing the partnership. With this renewed impetus, biannual policy dialogues 
with  Greenland  took  a  more  strategic  shape,  extending  the  policy  spectrum  of  the  bilateral 
engagement to green growth sectors as well as digital transformation and connectivity. This has 
translated  into  specific  actions  to  support  the  investment  agenda  under  the  Global  Gateway, 
including  the  first-ever  EU-Greenland  business  mission  in  Nuuk  in  October  2024,  a  joint  EU-

36   See footnote 33. 
37   See footnote 33. 
38   Council Decision 2006/526/EC of 17 July 2006 and Council Decision 2014/137/EU of 14 March 2014. 
39   See footnote 33. 
40   C/03/52 of 24 February 2003 (the only Council Conclusions on Greenland until now). 
41   The  Roadmap  supports  the  implementation  of  a  Memorandum  of  Understanding  (MoU)  on  establishing 
Sustainable Raw Materials Value Chains that was signed between the EU and Greenland in November 2023:  
EU and Greenland sign strategic partnership. 

42   The Arctic Hub is an institution based in Nuuk supporting Greenland's local and global research community. 

11 

 
 
 
 
 
 
 
Greenland  event  at  the  PDAC43  convention  in  Toronto  in  March  2025,  and  three  Greenland-
focused sessions during the EIT44 Raw Materials Summit in Brussels in May 2025. 

2.1.3  DOAG has promoted coherence with the broader EU financing architecture 

In  terms  of  implementation,  unless  otherwise  specified,  DOAG  refers  to  the  provisions 
Neighbourhood,  Development  and  International  Cooperation  Instrument  –  Global  Europe 
(NDICI)45, streamlining procedures through a common regulatory frame and increasing alignment 
between  both  basic  acts.  It  maintains  a  simplified  programming  process,  including  a  single 
Annual/Multiannual  Action  Plan  (A/MAP)  per  OCT,  except  for  Greenland,  and  per  region 
(covering the entire MFF) and does not require a mid-term review, reflecting the long-term and 
tailored nature of the association. 

To  enhance  effectiveness,  strategic  alignment,  and  complementarities  among  relevant  Union 
programmes and external financing instruments, DOAG introduces a new level of flexibility in its 
implementation  modalities,  namely  mechanisms  allowing  for  the  combination  of  funding  (i.e., 
joint  projects)  to  achieve  common  objectives,  provided  that  costs  are  not  duplicated.  This 
flexibility  did  not  exist  under  the  EDF  but  so  far  it  has  not  been  widely  applied  because  of 
procedural issues.  

To support the objectives of the partnership, DOAG also specifies the eligibility and access46 of 
the OCTs (as beneficiaries and/or participants) to: 

•  Relevant Union programmes (e.g., InvestEU, Horizon Europe, Erasmus+, Connecting Europe 

Facility: CEF, Creative Europe, LIFE/BESTLIFE) and  

•  External financing instruments (horizontal envelopes and rapid response actions under NDICI 

- but not EFSD+47 - as well as the humanitarian aid48). 

With over EUR 50 million EUR allocated to nearly 350 projects during the 2021-2024 period, the 
scale  and  impact  of  OCTs’  engagement  with  Union  programmes  have  markedly  increased, 
compared with the previous MFF49. The number of projects has tripled, and funding has surged 
tenfold since the 2014-2020 period.  

Efforts  to  boost  participation  in  programmes,  including  via  technical  assistance  and  dedicated 
training provided by the Commission are ongoing/in demand, reflecting both their relevance for 
the OCTs and OCTs’ growing interest to access diverse funding streams. However, this progress 
has not been evenly distributed among the OCTs (with Aruba, French Polynesia, and Greenland 

43   PDAC: Prospectors & Developers Association of Canada. The PDAC annual convention is the world’s premier 

mineral exploration and mining event. 

44   EIT: European Institute of Innovation and Technology. 
45   Regulation  (EU)  2021/947  of  the  European  Parliament  and  of  the  Council  of  9  June  2021  establishing  the 
Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing 
Decision No 466/2014/EU and repealing Regulation (EU) 2017/1601 and Council Regulation (EC, Euratom) No 
480/2009 (OJ L 209, 14.6.2021, pp. 1–78, ELI: http://data.europa.eu/eli/reg/2021/947/oj). 

46   The access to Union programmes is usually granted on a demand-driven and competitive basis with the rest of the 

European ecosystem. 

47   EFSD+: European Fund for Sustainable Development – one of the financing tools of Global Gateway, offering a 

variety of risk-sharing instruments. 

48   Council Regulation (EC) No 1257/96 of 20 June 1996. 
49   Draft Report on the Participation of the Overseas Countries and Territories in the European Union Programmes 

during the Period 2021-2024: prepared under FWC SEA 2023, contract number: 300112791. 

12 

 
 
 
 
 
 
 
 
 
 
absorbing  80%  of  the  funding)  and  programmes  (with  CEF,  Erasmus+,  and  LIFE/BESTLIFE 
concentrating over 80% of the overall allocation).  It is  also worth noting that InvestEU, which 
enable the preparation and financing of Global Gateway projects, has not been used so far. 

To ensure a greater impact and delivery on the strategic objectives, there is a need to strengthen 
coherence with the broader EU financing architecture. 

2.2    EU Added Value 

DOAG’s added value lies in its ability to address the purpose of the association as defined in the 
TFEU (see Chapter 1): “… to promote the economic and social development of the countries and 
territories and to establish close economic relations between them and the Union as a whole” that 
individual EU MS (even those having special links with the OCTs) could not achieve on their own.  

With increasing global competition, the OCTs assume renewed importance as strategic outposts of 
Europe, members of the European family within their respective regions, that bolster EU’s global 
presence by helping advance EU’s interests and promote EU’s values throughout the four corners 
of the world. It is reflected in the EU Strategy for Cooperation in the Indo-Pacific50, the EU's Arctic 
Policy ‘A Stronger EU Engagement for a Peaceful, Sustainable and Prosperous Arctic’51, and the 
2023 Agenda  for  Relations  between  the  EU  and  Latin America  and  the  Caribbean52. Also,  the 
Samoa Agreement53 considers the geostrategic importance of the OCTs for the cooperation with 
the African, Caribbean,  and Pacific (ACP) states and provides  for  their  observer status  in  joint 
institutions  established  under  the  Regional  Protocols.  The  OCTs  are  also  present  in  the 
Communication on the EU’s outermost regions54 

This stronger strategic importance is also reflected in DOAG where the OCTs and their sustainable 
development needs are part of the EU’s response to global challenges.  DOAG achieves this by 
enhancing OCTs’ competitiveness, strengthening their resilience, and reducing their economic and 
environmental  vulnerability,  while  promoting  cooperation  between  them  and  other  partners, 
including ACP/non-ACP states and territories and the EU’s outermost regions, under the umbrella 
of  the  Global  Gateway.  Such  action  at  Union  level  is  considered  necessary  to  ensure  effective 
integration of the OCTs into relevant EU’s regional/global initiatives and the related  value  and 
supply chains, driving sustainable development. 

As a party to most multilateral and regional processes, the EU also engages (including financially) 
with key international players in key policy areas relevant for the OCTs, including climate change, 
ocean governance, biodiversity loss, and food security. This leverage enables the EU to project 
globally its policies and values (shared with the OCTs), as well as influence the shaping of global 
norms and regulatory standards (benefiting also the OCTs).   

None of the EU MS acting alone would be able to adequately address the scale and the geographic 
scope  of  these  challenges,  as  well  as  to  mobilise  the  required  level  of  the  political  support, 

50   JOIN (2021) 24 of 16 September 2021. 
51   JOIN (2021) 27 of 13 October 2021. 
52   JOIN (2023) 17 of 7 June 2023. 
53   Partnership Agreement between the European Union and its Member States, of the one part, and the Members of 
the Organisation of African, Caribbean and Pacific States, of the other part (OJ L, 2023/2862, 28.12.2023, ELI: 
http://data.europa.eu/eli/agree_internation/2023/2862/oj). 

54   COM (2022) 198 of 3 May 2022. 

13 

 
 
 
 
 
 
 
 
 
 
financing and technical expertise. The EU is better suited to manage large-scale cooperation that 
transcends national borders and to leverage economies of scale.  

Compared to individual national actions, the EU, together with its MS, can achieve greater impact 
by incentivising and pooling together public and private investments to the benefit of the OCTs 
(e.g., for possible mining and renewable energy projects in Greenland and New Caledonia, and 
digital initiatives in the Caribbean), and by coordinating common positions and speaking with a 
stronger voice in multilateral and regional fora on issues important for the OCTs55. 

And last but not least, the EU MS would not be able to take action with regard to the OCTs’ trade 
regime (see Chapter 2.1.1), as the common commercial policy is an exclusive competence of the 
EU. 

3.  Lessons Learned and Challenges  

Based on the analysis of the performance and the added value of the EU action (see Chapter 2), 
the corresponding lessons learned, and challenges have been identified in the following areas: 

•  Adaptation to global trends and integration into regional economies. 
•  Coherence with the broader EU financing architecture. 
•  Effective dialogue. 

They have been translated into a set of changes (amendments) proposed to the current DOAG (see 
Chapter 5). 

3.1   Adaptation to global trends and integration into regional economies 

The  international  landscape  has  changed  significantly  over  the  last  years,  appearing  far  less 
predictable.  Geopolitical  instability,  climate  change,  risk  of  pandemics,  trade  tensions  and  the 
competition for technology and resources have an impact on the EU and the OCTs. 

On top of these mounting global challenges, the OCTs face several structural challenges - notably 
(i)  small  domestic  markets,  (ii)  geographic  remoteness  and  high  transportation  costs,  (iii) 
vulnerability  to  natural  disasters,  and  (iii)  fragile  digital,  energy  and  food  supply  chains  –  that 
hamper their development  potential. The Covid-19 pandemic has further exacerbated  their risk 
exposure,  revealing  severe  impacts  that  global  disruptions  can  have  on  their,  usually  mono-
sectoral, economies.  

Considering these inherently structural challenges and the great power competition in the Arctic, 
the Caribbean and the Pacific, a strong political signal regarding the EU’s continuous commitment 
to its partnership with the OCTs would be both of critical importance and very timely.   

The OCTs represent unique and strategic assets that benefit the Union as a whole – including their 
geostrategic  location,  exceptional  conditions  for  space  and  astrophysics  research,  abundant 

55   Good practice examples are the UN  Ocean Conference: UNOC (United Nations Ocean Conference) in Nice in 
June 2025 and the SIDS (Small Islands Development States) Conference in Antigua and Barbuda in May 2024. 

14 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
renewable energy potential, rich biodiversity, extensive maritime zones, and availability of mineral 
resources (Greenland and New Caledonia56).  

The EU has been a reliable partner for the OCTs and should continue leveraging their potential as 
geostrategic outposts. However, to take full advantage of the opportunities available in the current 
geopolitical  context, a more ambitious and sustained cooperation and investment  framework is 
needed,  to  help  translate  commitments  into  results  –  particularly,  in  support  of  the  Union’s 
objectives  on  security,  preparedness,  economic  security  and  regional/global  value  and  supply 
chains, and competitiveness. 

Global  Gateway  offers  a  win-win  partnership,  helping  address  structural  challenges,  increase 
investments:  contributing 
competitiveness,  diversify  economies,  and  attract  private 
simultaneously to the sustainable development of the OCTs and to the EU’s strategic interests.  

However, the existing toolbox (under DOAG but also relevant Union programmes and external 
financing  instruments)  has  not  been  sufficiently  explored  or  fully  available  to  the  OCTs  to 
effectively support this ambitious agenda (see Chapters 2.1.3 and 3.2). This challenge should be 
addressed under the upcoming MFF (see Chapter 5.2). 

Regional  and  intra-regional  cooperation  have  a  strong  potential  to  underpin  this  endeavour  by 
creating economies of scale and synergies (e.g., via joint programming and implementation under 
relevant  instruments,  joint  investments,  etc.),  and  by  establishing  platforms  to  foster  dialogue, 
mutual  understanding  and  peer  learning.  However,  despite  DOAG’s  clear  provision  for 
intraregional  cooperation  through  ringfenced  funding  under  the  regional  envelope,  uptake  and 
implementation  remain  limited.  This  suggests  not  only  a  need  for  clearer  communication  of 
strategic objectives and operational modalities, but also a more tailored and sustained capacity-
building  effort  to  ensure  OCTs  are  equipped  to  identify,  develop,  and  manage  intraregional 
initiatives. 

3.2   Coherence with the broader EU financing architecture 

In terms of financial implementation that is currently framed within the NDICI Regulation (see 
Chapter 2.1.3), DOAG could benefit from greater flexibility and simplified rules, including for the 
programming process, the comitology procedure, and budgetary transfers.  

An enhanced access to relevant Union programmes and external financing instruments (including 
the  Global  Gateway  toolbox  under  Global  Europe  instrument57)  should  further  leverage  the 
importance  of  the  OCTs  for  the  EU’s  geostrategic  agenda.  However,  this  process  is  not  aways 
straightforward with OCTs providing feedback that they need help in this regard.  

The access to Union programmes is usually granted on a demand-driven and competitive basis 
with  the rest  of the European ecosystem. The evidence shows (see Chapter 2.1.3) that, indeed, 

56   Two projects in the OCTs are identified as Strategic Projects under the EU Critical Raw Materials Act (CRMA): 
an  Amitsoq  Graphite  Project  promoted  by  ‘GreenRoc  Strategic  Materials’  in  Greenland,  and  a  nickel 
project promoted by ‘Société Le Nickel’ in New Caledonia. 

57   Proposal for a Regulation establishing Global Europe, 16.7.2025, COM (2025) 551 outlines a merger of external 
action instruments - including the successors of NDICI, the Instrument for Pre-accession Assistance (IPA), and the 
humanitarian aid - to enhance flexibility, coherence and strategic direction of EU external action funding.  

15 

 
 
 
 
 
 
 
 
 
 
 
 
some OCTs have succeeded in increasing their participation in a limited number of programmes, 
while many have still not been able to take full advantage of them. 

Chapter  5.2  elaborates  on  how  to  address  these  challenges  by  further  reinforcing  DOAG’ 
coherence with the broader EU financing architecture. 

3.3  Effective dialogue  

Considering the geostrategic situation and underlying policy challenges (see Chapter 3.1), there is 
a  need  to  further  extend  the  spectrum  of  the  dialogue  to  ensure  stronger  alignment  of  the 
partnership with the EU’s strategic goals, including via Global Gateway. This also covers the need 
to  promote  enhanced  DOAG  coherence  with  internal  and  external  policies,  as  well  as  relevant 
Union programmes and external financing instruments.   

The  current  dialogue  structure,  especially  the  annual  OCTs-EU  Forum  and  the  four  trilateral 
consultations  each  year,  ensures  a  dynamic  reciprocal  engagement.  However,  the  frequency  of 
these  interactions  seems  to  dilute  their  strategic  focus  and  impact. There  appears  to  be  limited 
added  value  relative  to  the  number  of  meetings  held  and  the  preparations  are  highly  time 
consuming for each side.  

The Commission has been a strong supporter of OCTA for several years, recognising its role in 
representing collective interests of the OCTs in the implementation of the partnership, including 
as part of the dialogue. However, administrative deficiencies experienced by the organisation, as 
confirmed by several expenditure verification processes, hindered effective and fluent dialogue. 
Considering this, OCTA has not received any direct operating grants since January 2023 and has 
not  been  entrusted  with  any  project  implementation  tasks.  However,  to  maintain  OCTA’s 
involvement  in  the  dialogue  and  in  recognition  of  the  anticipated  internal  reform  efforts  (see 
Chapter 1), the organisation has been supported by dedicated technical assistance58 (managed by 
the Commission) to enhance its administrative capacities. 

4.  ‘Single Option’ Explanation 

Considering the legal provisions of the OCTs-EU partnership (see Chapter 1), there is no obvious 
alternative to DOAG. 

Unlike  the  NDICI  Regulation  that  establishes  a  funding  instrument  (2021-2027),  DOAG  is  a 
Council Decision that establishes (i) an association of the OCTs with the Union in line with the 
Treaty provisions, and (ii) a funding programme for the association. Therefore, DOAG is one of 
the rare basic acts under the external action that does not have a sunset clause linked to the duration 
of the MFF (except for its funding programme).  

Also,  different  legislative  procedures  apply  to  NDICI  and  DOAG:  ordinary  legislative 
procedure and special legislative procedure59 respectively.  

For these reasons, NDICI and DOAG could not be merged and adopted as one package during the 
last  MFF  negotiations. And  it  has  been  decided  that  the  same  approach  would  apply  for  the 

58   A new 2-year technical assistance contract of EUR 175.000 (SEA-2023-33204) was launched in 2025.  
59   The Council acting unanimously on a proposal from the Commission and after consulting the European Parliament 

(Article 203 of the TFEU). 

16 

 
 
 
 
 
 
 
 
 
 
 
 
 
upcoming MFF: a legal proposal for the EU partnership with the OCTs remains separate from the 
planned Global Europe  due to its distinctive legal nature. 

Chapter 2 confirms that the purpose, the objectives, the institutional framework of the association 
with its areas of cooperation, as well as trade provisions of the partnership, as reflected in DOAG, 
remain largely relevant and fit for purpose, providing the EU’s clear response to underlying policy 
goals. However, the funding programme for the association, considering its sunset clause, needs 
to be presented again, including its financial envelope and implementation modalities.  

In this regard, only an amendment of DOAG is proposed under the upcoming MFF (see Chapter 
5). The amendment will focus on the funding programme and consider the analysis in Chapter 3 
to address identified challenges.  

5.  Proposed Changes (Amendments) 

Based on the analysis of the performance and the added value of the EU action (see Chapter 2), 
and taking due account of the lessons learned and identified challenges (see Chapter 3), a set of 
amendments (see Chapter 4) is proposed to further enhance DOAG’s strategic dimension and to 
ensure more impact while delivering on the objectives of the EU-OCT partnership.  

The  amendments  concern  the  DOAG  body  text  and  Annex  I.  Annexes  II,  III,  and  IV  were 
significantly updated during the 2021-2027 MFF negotiations and remain fit for purpose.  

The proposed changes aim at:  

Integrating DOAG better into the strategic investment agenda under the Global Gateway. 

• 
•  Reinforcing coherence within the broader EU financing architecture. 
•  Enhancing structure and strengthening strategic focus of the dialogue. 

5.1 

Integrating  DOAG  better  into  the  strategic  investment  agenda  under  the  Global 
Gateway 

To bring the EU-OCTs partnership more in line with the commitments under the Global Gateway, 
it is proposed to merge allocations for territorial (bilateral) and regional cooperation and present 
them as two different global envelopes to finance:  

(i) 
(ii) 

the cooperation with the OCTs other than Greenland, and  
the cooperation with Greenland,  
while providing for flexible implementation modalities.  

These  two  pillars  will  be  complemented  by  a  ring-fenced  allocation  for  studies  and  technical 
assistance a well as by an unallocated emerging challenges and priorities cushion (a non-allocated 
fund), to increase flexibility as well as the ability of the Union to respond to unforeseen needs, 
building on the experience of the current DOAG. 

It  is  also  recommended  to  bring  joint  initiatives  between  the  OCTs  (currently  ‘regional 
cooperation) as well as between them and ACP/non-ACP states and territories, EU’s outermost 
regions  and  relevant  regional  bodies  (currently  ‘intra-regional  cooperation)  under  a  single 
‘regional  cooperation’  framework.  It  would  offer  more  flexibility  in  establishing  effective 
partnerships  to  promote  sustainable  development  and  mutual  learning. A  specific  reference  to 
‘intra-regional cooperation’ would therefore be deleted as obsolete. 

17 

 
 
 
 
 
 
 
 
 
 
 
 
 
The proposed approach would allow for greater flexibility in structuring financial cooperation and 
help  apply  the  right  mix  of  tools,  including  under  Global  Gateway,  in  a  more  targeted  and 
interconnected way (see Chapters 3.2 and 5.2). This would further unlock investment opportunities 
in the OCTs and promote their more effective integration into EU’s/global value and supply chains 
and related regional initiatives - enhancing financial (and political) leverage and impact.  

5.2  Reinforcing coherence within the broader EU financing architecture  

The  ‘external’  DOAG  dimension  specifying  the  eligibility  and  access  of  the  OCTs  to  relevant 
Union programmes and external financing instruments should be maintained, explicitly recognised 
and  further  reinforced  via  relevant  cross-references.  The  objective  is  to  promote  increased 
complementarities of actions under the Global Gateway and stronger integration of the OCTs into 
the EU’s competitiveness agenda, including its value and supply chains.  

To this end, it is proposed that: 

•  The OCTs are eligible for relevant components of the Global Europe, including its strengthened 

Global Gateway toolbox.  

•  The  OCTs  are  included  in  the  geographical  scope  of  the  European  Competitiveness  Fund 

(ECF)60 and other relevant Union programmes.  

ECF’s comprehensive architecture would allow it to accompany OCTs’ Global Gateway-related 
projects  along  the  entire  investment  journey,  from  research,  through  scale-up,  industrial 
deployment, to manufacturing, in addition to and/or in complementarity with DOAG. The Fund 
could also help leverage and de-risk private investment.  

For the implementation of financial cooperation, DOAG’s should refer to Global Europe to ensure 
access to an updated Global Gateway toolbox, including budget support, also in combination with 
policy-based loans, budgetary guarantees (e.g., the successor to EFSD+), blending and technical 
assistance, that would allow to build comprehensive investment support packages in the OCTs. By 
referring to the proposed Performance Regulation61 (via Global Europe), it would also benefit from 
streamlined procedures for monitoring, reporting, evaluation and communication.   

Necessary exceptions should be introduced in DOAG to allow for more financial flexibilities and 
simplified  rules  to  be  applied  to  the  comitology  procedure  for  action  plans  and  measures  with 
relatively  little  funding,  and  to  the  programming  process,  i.e.,  replacing  multiannual  indicative 
programmes by annual or multiannual action plans in situations where one single action is planned 
for the entire MFF. 

60   Proposal  for  a  Regulation  on  establishing  the  European  Competitiveness  Fund  (‘ECF’),  including  the  specific 
programme for defence research and innovation activities, repealing Regulations (EU) 2021/522, (EU) 2021/697, 
(EU) 2021/783, repealing provisions of Regulations (EU) 2021/696, (EU) 2023/588, and amending Regulation 
(EU) [EDIP], 16.07.2025, COM (2025) 555. 

61   Proposal for a regulation of the European Parliament and of the Council establishing a budget expenditure tracking 
and performance framework and other horizontal rules for the Union programmes and activities, 16.7.2025, COM 
(2025) 545 final. The proposal contains the rules for the expenditure tracking and the performance framework for 
the Union budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ 
and gender equality, rules for monitoring and reporting on the performance of Union programmes and activities, 
rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal 
provisions applicable to all Union programmes such as those on information, communication and visibility. 

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5.3  Enhancing structure and strengthening strategic focus of the dialogue  

It is suggested to have the OCTs-EU Forum every two years (instead of current annual meetings) 
and three trilateral consultations per year (instead of four). Working parties’ meetings, acting in an 
advisory capacity and convened on an ad hoc basis, should continue to complement the Forum 
and trilateral consultations. 

The proposed schedule for the Forum would help avoid ‘summit fatigue’ and the lack of tangible 
progress  between  the  events,  as  well  as  encourage  more  high-level  political  participation  and 
strategic policy discussions. It would also better align with the frequency of other international 
fora, for instance, the EU-LAC (Latin America and the Caribbean) Summit or the EU- AU (African 
Union) Summit, that take place every 2 years, or less.  

Trilateral consultations have been held, in practice, 3 times a year for the last few years, which has 
proven sufficient. They could be complemented by working parties’ meetings bringing together 
civil  society  and  private  sector  actors,  policymakers  and  financial  institutions  to  advance  the 
partnership under the umbrella of the Global Gateway. 

The  dialogue  would  benefit  from  a  functional,  efficient  and  transparent  OCTA. Therefore,  the 
current technical  assistance should  continue depending  on OCTA’s  political  legitimacy and the 
progress on the related reform efforts. 

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