COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Strategy for Civil Society
Date: 2025-11-12
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU strategy, civic engagement, civil society, human rights, non-governmental organisation, policymaking, political participation, public consultation, rule of law

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 12.11.2025  COM(2025) 790 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Strategy for Civil Society  
 
 
1.  INTRODUCTION 

An open civic space, with a vibrant civil society is at the core of our democracies. Civil 
society plays an essential  role in  our societies contributing  to  policymaking, partnering 
with governments to implement public policies, delivering social and community support 
and  services,  raising  awareness  about  important  social  issues,  and  representing  diverse 
groups  in  vulnerable  situations.  The  contribution  of  civil  society  is  critical  to  foster 
citizens’ engagement and democratic participation, as well as an inclusive public debate, 
including by actively involving young people. Civil society also plays an important role in 
the  democratic  checks  and  balances,  helping  monitor  policy  and  decision-making  and 
fostering transparency and accountability. 

Operating  at  local,  regional,  national  and  international  level  –  both  within  the  EU  and 
beyond – civil society helps promote and protect the values enshrined in Article 2 of 
the Treaty of the European Union (TEU) and the Charter of Fundamental Rights of 
the European Union (the Charter). Recognising its important role, the European Union’s 
founding  Treaties  set  out  that  EU  institutions  should  engage  with  civil  society  through 
open, transparent and regular dialogue and to conduct their work as openly as possible in 
order to ensure civil society’s inclusive and active participation1.  

Engagement with civil society is a cornerstone of EU policymaking. Various tools and 
processes at EU level enable civil society to present its views and be involved in the design, 
implementation,  monitoring,  and  evaluation  of  EU  legislation  and  policy,  and  the 
Commission  has  established  structured  civil  society  dialogue  in  many  policy  areas. 
Furthermore,  civil  society  organisations  (CSOs)  provide  advice  and  expertise  by 
participating  in  the  work  of  Commission’s  expert  groups  and  other  relevant  fora.  The 
European Economic and Social Committee (EESC) also plays a key role in bringing the 
voice of organised civil society to the European level. 

For this engagement to be effective, the EU has increasingly recognised that civil society 
needs an enabling, safe and supportive environment throughout the EU2. This includes 
adequate protection for CSOs and human rights defenders (HRDs) who experience an 
overall shrinking civic space, and who face threats and attacks in relation to their work3. 
Sustainable and transparent financial support is also essential for a thriving civil society 
and for ensuring that CSOs can operate independently.  

Building on existing frameworks and on the commitment in the Political Guidelines for 
2024-2029  to  step  up  engagement  with  CSOs  and  to  ensure  they  are  supported  and 
protected in their day-to-day work, the EU Strategy for Civil Society sets out a series of 
concrete  actions  at  both  EU  and  national  level,  including  as  regards  the  EU’s  external 
action. These actions are structured around three key objectives:  

1Article 11 of the TEU; Article 15, paragraph 1 of the TFEU. 
2See 2020 Charter Strategy and 2022 Charter Report, European Parliament 2022 Report on the shrinking 
space for civil society in Europe; Council Conclusions on the application of the EU Charter of Fundamental 
Rights. 
3Articles 11 and 12 of the Charter. 

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•  To  strengthen  effective  and  meaningful  engagement  with  civil  society  as  a 

partner in governance 

•  To ensure an open, safe and enabling civic space by providing support and 

protection to civil society organisations 

•  To  support  civil  society  organisations  with  adequate,  sustainable  and 

transparent funding  

The Commission will establish a Civil Society Platform, which will provide a regular and 
structured framework for its engagement with CSOs in areas relevant for upholding EU 
values, in particular those working on promoting democracy, the rule of law, equality and 
fundamental rights, in line with the Political Guidelines.  

The  Strategy  also  establishes  a  common  framework  to  guide  and  strengthen  the 
Commission’s engagement with CSOs. Acknowledging that each policy area may come 
with specific requirements and different mechanisms for engagement, it does not seek to 
standardise  them.  Instead,  it  sets  out  a  set  of  guiding  principles  to  serve  as  a  shared 
framework for carrying out dedicated dialogues with civil society across policy sectors, 
focusing on key parameters for dialogue, such as partnership, transparency, representation 
and  accountability.  In  setting  out  these  principles,  the  Strategy  takes  full  account  and 
complements  the  institutional  mechanisms  that  already  exist,  particularly  through  the 
EESC. 

The Strategy aims to strengthen actions at both EU and national level, engaging closely 
with Member States and enlargement countries4, to promote and sustain a thriving civic 
space. It also aims to foster greater coherence between the EU’s internal and external 
activities  in  this  area.  To  achieve  these  aims,  cooperation  is  crucial  between  EU 
institutions  and  bodies,  including  the  European  External  Action  Service  (EEAS),  the 
EESC,  the  EU  Agency  for  Fundamental  Rights  (FRA)  and  with  Member  States.  A 
coherent approach and strong collaboration will foster a sense of shared responsibility, that 
will  benefit  society  as  a  whole  by  reinforcing  democratic  participation,  resilience  and 
public trust. This Strategy complements the actions set out in the European Democracy 
Shield. 

In preparing the Strategy, the Commission gathered input through extensive consultations 
with a wide range of stakeholders5. The Strategy was also informed by an opinion from 
the EESC, input from Member States, and exchanges held with the FRA, the European 
Parliament and the European Committee of the Regions.  

2.  CIVIL  SOCIETY  AS  A  PARTNER  IN  GOVERNANCE:  STRENGTHENING  EFFECTIVE  AND 

MEANINGFUL ENGAGEMENT 

Civil society contributes to more effective, inclusive, and representative policymaking 
at  the  EU,  national  and  local  level.  Ensuring  that  civil  society  organisations  can 

4Candidate countries and potential candidates for accession to the EU will be integrated into relevant actions 
and associated similarly to Member States in the Strategy. The Strategy recognises the civic space in Member 
States and enlargement countries as a continuum and shared space. 
5These  consultations  included  a  public  consultation  survey;  a  Eurobarometer  survey;  and  targeted 
consultation meetings with CSOs, donors, international organisations and national human rights institutions. 
The  Commission  consulted  youth  civil  society  organisation  in  the  framework  of  the  Commission  Youth 
Check.  

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meaningfully participate in public life and contribute their views via transparent processes 
is an important element of a robust and inclusive policymaking process.  

For  the  purpose  of  the  Strategy,  civil  society  organisations  (CSOs)  are  broadly 
understood  as  all  non-State,  not-for-profit,  independent,  non-partisan  and  non-
violent organisations, through which people pursue and defend shared objectives and 
ideals6. They are self-governing entities which are independent from government or from 
business interests, ranging from informal, to semi-formal and formal groups, and can be 
membership-based,  cause-based,  or  service-oriented7.  They  can  operate  at  the  local, 
regional, national and international level, and be run by volunteers and/or paid staff.  

Human rights defenders are generally understood as individuals, groups and organs of 
society that promote and protect universally recognised human rights and fundamental 
freedoms, including children’s rights8.  

The  Strategy  focuses  on  CSOs  and  human  rights  defenders.  Engagement  with  social 
partners (e.g. representatives of employers and workers) is not covered by the Strategy 
due to their specific status under EU law, as recognised in Article 154 TFEU. 

In  line  with  the  EU’s  values,  the  Strategy  covers  accountable,  independent  and 
transparent  CSOs,  which  share  and  function  according  to  the  EU’s  commitment  to 
respect  for  human  dignity,  freedoms,  democracy,  equality,  the  rule  of  law  and 
fundamental rights.  

Europeans clearly recognise the contributions of CSOs as 87% of respondents to the 2023 
Eurobarometer  survey  considered  that  these  organisations  play  an  important  role  in 
promoting and protecting democracy and other EU values, such as respect for fundamental 
rights, including in terms of fostering a well-informed and pluralistic democratic debate. 
42% of the respondents to the 2025 Eurobarometer considered exposing corruption was 
the most significant area of work of civil society, followed by defending individual rights 
(41%), delivering services (39%) and monitoring government action (28%). 

2.1. Strengthening engagement and dialogue with civil society  

Civil  society  plays  an  important  role  in  providing  advice,  support  and  expertise  in  the 
development and implementation of EU legislation and policies across a wide range 
sectors, such as agriculture, cohesion policy, culture, social policy, education and youth, 
justice  and  home  affairs,  consumer  protection,  competition  policy,  media  and  digital 
policy, migration and asylum, research and innovation, climate and environment, mobility, 
trade and sustainable development, humanitarian aid and international cooperation, and 
enlargement policy. More broadly, they help promote and protect the rights enshrined in 

6See  Commission  Recommendation  (EU)  2023/2836  on  promoting  the  engagement  and  effective 
participation of citizens and civil society organisations in public policymaking processes; Guidelines for EU 
support to civil society in the enlargement region 2021-2027; and Communication from the Commission, 
On  the  roots  of  democracy  and  sustainable  development:  on  Europe's  engagement  with  Civil  Society  in 
external relations. The notion of ‘civil society organisations’ used in this Strategy is not a legally binding 
definition  and  specific  requirements  may  apply under  EU law  regarding  organisations  referred  to  in  this 
Communication, such as under the EU Financial Regulation. 
7Examples 
organisations, charities, foundations, youth and social movements, and cooperatives.  
8In the Strategy, the term ‘CSOs’ refers to both civil society organisations and human rights defenders, but 
does not include those individuals or groups who commit or propagate violence. See paragraphs 2 and 3 of 
the EU Guidelines on Human Rights Defenders and recital 11 of the EU anti-SLAPP Directive. 

faith-based  organisations,  non-governmental 

include  community-based  organisations, 

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the Charter9, preventing and countering discrimination, promoting active citizenship and 
encouraging young people to participate in democratic processes. They also contribute to 
fostering societal preparedness and resilience10. They are important partners in monitoring 
the implementation and progress of accession reforms and negotiations in the enlargement 
context.  

Various  engagement  mechanisms  exist  at  EU  level,  enabling  CSOs  to  contribute 
throughout  the  policymaking  cycle  across  all  policy  areas,  from  the  initial  preparation 
stages of initiatives to the implementation phase. For example, the Have Your Say portal 
acts  as  the  entry  point  for  all  contributions  to  legislative  proposals,  evaluations,  fitness 
checks and communications through public consultations.  

The Commission uses a wide array of consultation means for its engagement with CSOs. 
In addition to the Better Regulation tools, this involves formal dialogue structures such as 
implementation dialogues, youth policy dialogues, advisory boards, as well as expert 
groups and other flexible arrangements (e.g., ad hoc focus groups on specific issues, or 
through  stakeholder  platforms  and  networks).  At  the  national  level,  the  EU  Local 
Councillors  network,  jointly  managed  by  the  Commission  and  the  Committee  of  the 
Regions, and the Europe Direct centres can help connect and engage with civil society on 
the ground. The Commission and the EU Delegations also regularly engage with CSOs in 
enlargement countries and third countries.  

Dedicated civil society dialogues exist in various policy areas. For example, structured 
civil society dialogue in employment and social policies is ensured through the European 
Semester  process  and  civil  society  organisations  are  key  partners  for  implementing  the 
European Pillar of Social Rights. Civil society dialogues also sometimes cover specific, 
sectoral stakeholders. For example, organisations representing rural communities via the 
Rural Pact under the Vision for Agriculture and Food, or dialogue with religious or non-
confessional  groups,  established  under  Article  17  TFEU.  The  European  Disability 
Platform supports cooperation with Member States and civil society on implementing the 
Strategy for the Rights of Persons with Disabilities, and the EU Children’s Participation 
Platform  promotes  children’s  right  to  be  heard  in  decision-making  and  supports  civil 
society in fostering child engagement11. 

The  Civil  Society  Platform,  which  will  become  operational  as  of  2026,  will  reinforce 
dialogue on EU values. It will provide a regular and structured framework for dialogue 
on the protection and promotion of EU values, streamlining and strengthening engagement 
on fundamental rights, democracy, equality and the rule of law, and offering a space to 
address challenges faced by CSOs working in these areas12. The Platform will facilitate 
exchanges  on  the  objectives  of  the  Strategy  to  strengthen  engagement,  support,  and 
protection, allow for timely and meaningful input to policy development, and on funding.  

9See, for example, 2022 Annual Report on the Application of the EU Charter of Fundamental Rights. 
10Joint Communication on the European Preparedness Union Strategy. 
11Other  examples  include  the  New  European  Bauhaus;  the  Advisory  Committee  on  Equal  Opportunities 
between Women and Men; EU Youth Stakeholder Group; EU Civil Society Platform against Trafficking in 
Human Beings; Expert group on the views of migrants in the field of migration, asylum and integration, 
Civil Society Forum on Drugs; EU-NGO Human Rights Forum; Trade civil society dialogue; Anti-racism 
civil society forum; EU Victims’ Rights Platform; European Roma Platform; Consumer Policy Advisory 
Group.  
12See recent data, for example Fundamental Rights Agency, Protecting civil society – Update 2023; FRA 
civic space consultations 2024 – key findings; Factual Summary report on consultations for the EU Civil 
Society Strategy (Factual summary report). 

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To enhance visibility and accessibility of information, and make engagement easier for 
CSOs, the Commission will set up a website for the Civil Society Platform where it will 
publish information and resources about the Platform’s work as well as information about 
Commission  dialogues  with  civil  society  across  other  policy  areas.  This  will  allow 
organisations  to  easily  find  information,  dates,  requirements  for  participation  and 
possibilities to express interest for participating in different dialogues. 

As part of the Platform, the Commission will organise an annual summit together with 
the EESC to develop synergies between ongoing dialogues and discuss strategic priorities. 

The Platform will have an agile and adaptable structure, designed to respond to changing 
needs and priorities. In developing the functioning of the Platform, the Commission will 
draw on existing best practices within the Commission as well as the expertise of relevant 
stakeholders, in particular the EESC and the FRA’s Fundamental Rights Platform. Over 
time, the Platform may be extended to cover other policy areas. 

2.2 Guiding principles for an effective and meaningful dialogue with civil society 

Consultations with stakeholders have highlighted that while many important engagement 
structures exist, more consistency should be sought between them. Recognising that to be 
effective and meaningful, dialogue will always need to be adapted to specific objectives 
and  sector-specific  needs,  the  Strategy  proposes  10  guiding  principles  for  dialogue 
between the Commission and civil society13.  

These  guiding  principles  are  meant  to  serve  as  a  shared  framework  for  carrying  out 
dedicated  dialogue  mechanisms  with  CSOs  across  policy  sectors,  applying  to  both  the 
Commission  and  to  CSOs.  It  is  important  that  CSOs  themselves  ensure  that  their  own 
practices and structures are transparent, responsible and in line with EU values, so that 
their engagement in such dialogue is accountable and grounded in common standards and 
respects the roles of the EU institutions and the guidance for receiving funding14. These 
principles  draw  on  input  from  various  consultations,  EU  policy  documents  and 
recommendations, existing best practices in the EU, and standards and practices developed 
at international level15. 

13These  principles  should  guide  dialogue  mechanisms  with  CSOs,  recognising  that  there  are  many  other 
forms of engagement, such as European citizens initiatives, public consultations, open innovation, citizen 
science, or representative deliberative processes.  
14See the Commission’s published guidance. 
15Factual summary report; Commission Recommendation (EU) 2023/2836; EESC opinion SOC/840-EESC-
2025; CoE Secretary General’s Roadmap on the Council of Europe's Engagement with Civil Society 2024-
2027,  SG/Inf(2023)28;  CoE Conference  of  INGOs,  Code  of  Good  Practice  for  Civil  Participation  in  the 
Decision-Making Process; Open Government Partnership Participation and Co-Creation Standards; OECD 
Working Paper on Public Governance No. 81.  

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10 guiding principles for dialogue with civil society  

1) Partnership: Cooperation should welcome civil society’s proactive contribution as 
a partner in shaping the dialogue, setting priorities and agendas, defining objectives or 
evaluating outcomes.  

2) Comprehensiveness: Dialogue should seek to engage participation from civil society 
throughout different stages of policymaking.  

3) Predictability and regularity: Dialogue should be part of a predictable and regular 
process and provide adequate timeframes for contributions. 

4) Transparency:  Clear  communication  should  be  ensured  about  procedures, 
objectives, timelines and participation criteria, along with timely and adequate access to 
relevant documents, in compliance with applicable legal requirements.  

5) Representation: The selection of participants should be based on the organisations’ 
independence, legitimacy, representativeness and expertise, as well as their adherence 
to EU values. 

6) Inclusivity: The dialogue should strive to include an adequately broad spectrum of 
organisations, reflecting a sectoral and geographical balance and with due account to 
organisations  representing  groups  that  are  underrepresented,  marginalised  or  in 
vulnerable situations. 

7) Accessibility: Dialogues, whether taking place online or offline, should be designed 
and  implemented  with  appropriate  technological  tools  with  a  view  to  remove 
accessibility barriers and enable full and equal participation. 

8) Accountability:  Feedback  on  how  dialogue  contributes  to  policy  advancements 
should foster mutual responsibility and trust.  

9) Resourcing:  Where  applicable,  financial  or  logistical  support  should  be  made 
available  to  enable  participation,  taking  into  account  the  needs  of  grassroots  and 
community-based  organisations  to  ensure  that  they  are  not  excluded  due  to  limited 
means. 

10) Safety: Safeguards should be in place to ensure that organisations can participate 
safely in dialogue, including through appropriate measures to protect personal data and 
confidentiality. 

These principles mirror the key parameters for civic engagement set out in Commission 
Recommendation (EU) 2023/2836, which also calls on Member States to create greater 
opportunities  for  citizens  and  CSOs  to  participate  effectively  in  public  policymaking 
processes at local, regional and national level. In response to the Recommendation, several 
Member States have taken steps to ensure its implementation, including by establishing 
new  institutional  frameworks  and  platforms  for  dialogue  with  civil  society,  preparing 
guidance on consultations during the decision-making process, having regular engagement 
with  civil  society  across  policy  areas  and  more  systematically  ensuring  civil  society 
participation in consultation processes16.  

16For  example,  in  Czechia,  Denmark,  Germany,  Ireland,  France,  Portugal,  Latvia,  and  Finland,  several 
consultative bodies that include CSOs have been set up to advise  the government in different areas (e.g. 
children’s rights, the rights of older people, national minorities and LGBTIQ+ equality). 

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Important progress has been made, but CSOs still report some shortcomings and, after 
almost two years since the adoption of this Recommendation, there is a need for further 
data  collection  and  follow-up  on  its  implementation.  The  Commission  will  therefore 
further  support  capacity-building  at  the  national  level  for  the  implementation  of  the 
Recommendation and organise exchanges with Member States, in  cooperation with  the 
EESC and the FRA. These will focus on strengthening engagement, support and protection 
for civil society at national level. 

The Commission plans to also increase its collaboration with civil society through different 
platforms and initiatives. It will involve young people and organisations in various youth 
forums,  encourage  civil  society  participation  in  debates  on  the  Citizens’  Engagement 
Platform, and connect civil society with citizens’ input from the European Citizens’ Panels 
to help shape EU policies. 

Civil society is an essential actor in the enlargement agenda. For an aspiring EU Member 
State, a vibrant civil society contributes to the process of accession. The involvement of 
civil  society  in  the  enlargement  process  can  contribute  to  deepening  citizens’ 
understanding of the reforms needed in order to meet the conditions for accession. With a 
view to strengthen civil society participation in these processes, the Commission will steer 
work to institutionalise and standardise in-country consultation of CSOs in the preparation 
of meetings of relevant bodies under the association agreements and their follow up and 
monitoring. 

The Commission will:  

-  Establish a Civil Society Platform to step up its engagement with CSOs active in the 
promotion and protection of EU values, with the possibility to expand to other policy 
areas over time.  

-  Organise an annual summit of the Civil Society Platform together with the EESC. 

-  Promote the use of the 10 guiding principles for dialogue with civil society. 

-  Engage with civil society through the Commission President’s Youth Advisory Board, 
the  EU  Youth  Stakeholders  Group,  the  EU  Youth  Dialogue  and  the  Youth  Policy 
Dialogues and promote the participation of civil society in the debates promoted on 
the Citizens’ Engagement Platform. 

-  Engage with civil society around European Citizens’ Panels as a way to create a bridge 

between CSOs and engagement with citizens in the shaping of EU policies. 

-  Support  national  capacity-building  and  organise  exchanges  with  Member  States  on 
Commission Recommendation (EU) 2023/2836 concerning civil society participation, 
in cooperation with relevant actors, including the EESC and FRA.  

- 

Institutionalise and standardise in-country consultation of CSOs in the preparation of 
meetings of relevant bodies under the association agreements and their follow up and 
monitoring. 

Member States are invited to: 
-  Strengthen  engagement  mechanisms  and  policies  in  accordance  with  the  principles 
identified  in  the  Strategy,  including  by  taking  further  steps  to  fully  implement 
Commission Recommendation (EU) 2023/2836, as regards the effective participation 
of civil society organisations. 

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3.  PROVIDING  SUPPORT  AND  PROTECTION: ENSURING  AN  OPEN,  SAFE  AND  ENABLING 

CIVIC SPACE 

A  thriving  civic  space17  requires  an  enabling  legal,  administrative,  and  regulatory 
environment, where CSOs are supported and empowered, and where they are protected 
and can operate freely. According to a 2024 Eurobarometer survey on the rule of law, 86% 
of  Europeans  consider  it  important  that  media  and  civil  society  organisations  across 
Member States are able to operate freely and without pressure. Maintaining such a free 
and enabling environment requires monitoring and effective responses when threats or 
attacks arise.  

Support for a vibrant civil society remains central to the Commission’s work across all 
policy areas - a commitment that is reflected in various strategies and policy documents18. 
The 2022 annual report on the application of the Charter focused on civic space, mapping 
existing measures and identifying gaps and areas for improvement, and was complemented 
by Council conclusions on the topic19. 

Several measures were put forward to safeguard civic space. For instance, by addressing 
systemic  barriers  that  hinder  cross-border  collaboration  between  CSOs  the  Social 
Economy  Action  Plan  (SEAP)  and  the  Council  Recommendation  on  developing  social 
economy  framework  conditions  aim  to  strengthen  CSOs  by  boosting  their  capacity, 
visibility and impact in the social economy. The Commission has also taken concrete steps 
to create a more supportive environment for civil society, including measures to ensure 
fair taxation for charitable organisations and to safeguard their access to financial services. 
For example, under the recently adopted Regulation on anti-money laundering, measures 
have been introduced to ensure that CSOs are not denied financial services, such as bank 
accounts,  solely  because  they  operate  in  countries  considered  to  present  a  high  risk  of 
money laundering20. 

3.1. Understanding barriers and threats: monitoring the civic space  

Stakeholders report about measures that in their view restrict the environment in which 
CSOs  and  HRDs  operate21.  These  may  include  disproportionate  and  burdensome 
registration requirements, unfair tax or financial reporting rules, shortcomings in accessing 
funding,  undue  obstacles  to  receiving  financial  services,  and  legal  requirements  that 
restrict cross-border operations.  

Some CSOs also increasingly report about facing a range of threats and attacks including 
attacks  on  their  staff  or  premises,  smear  and  disinformation  campaigns,  or  strategic 
lawsuits against public participation (SLAPPs). Attempts to unduly dissolve associations, 
the  dismantling  of  dialogue  structures,  discretionary  freezing  or  cutting  of  funding  or 
illegal surveillance measures are also raised as a concern by civil society. Transnational 

17Civic  space  refers  to  ‘the  environment  that  enables  people  and  groups  –  or  “civic  space  actors”  –  to 
participate meaningfully in the political, economic, social and cultural life in their societies’ (UN Guidance 
Note on Protection and Promotion of Civic Space) or  ‘the set of legal, policy, institutional and practical 
conditions non-governmental actors need to access information, express themselves, associate, organise and 
participate in public life’ (OECD, the Protection and Promotion of Civic Space). 
18See the 2020 Strategy to strengthen the application of the Charter of Fundamental Rights in the EU, the 
2020 European Democracy Action Plan, and specific examples such as the Union of Equality Strategies; the 
New European Bauhaus, and the Consumer Agenda 2025-2030. 
19Council Conclusions on the application of the EU Charter of Fundamental Rights. 
20Article 21(3) and recital 53 of Regulation (EU) 2024/1624. 
21FRA civic space consultations 2024 – key findings; Factual summary report. 

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repression from third countries is a growing phenomenon that particularly affects HRDs22. 
The cross-border nature of such repression creates significant obstacles for affected HRDs 
when filing complaints, seeking protection, or pursuing justice. In that respect, they often 
face  specific  obstacles  related  to  travel  documents  and  visa  requirements23  as  well  as 
administrative hurdles and delays. 

This can have a knock-on effect, leading CSOs to limit their engagement and discouraging 
them from fully exercising their roles. Furthermore, they disproportionately affect CSOs 
working on topics related to democracy, the rule of law and fundamental rights, and groups 
that are underrepresented, marginalised and in vulnerable situations24. Addressing these 
challenges requires a coherent and comprehensive approach from the EU and Members 
States.  

An effective monitoring of the civic space is essential for supporting and protecting CSOs 
in their work. A clear identification of risks and threats can result in concrete follow-up 
actions  by  those  actors  that  are  equipped  to  provide  support  –  both  preventative  (in 
response to early warning signs) and  reactive (in the face of actual threats  or  attacks). 
Such  measures  may  include  public  statements  condemning  harmful  developments  and 
expressing support to the work of CSOs, funding for psychosocial support, legal advice, 
and emergency funding.  

The Commission has developed its own monitoring and assessment tools that also focus 
on aspects related to civic space. Under the Rule of Law reports, the Commission monitors 
developments in all the Member States and some enlargement countries, highlighting both 
positive  and  negative  developments  in  relation  to  the  civic  space,  and  issues  specific 
recommendations  where  relevant.  For  enlargement  countries,  such  information  is  also 
monitored as part of the annual enlargement package25. 

The Commission  also  receives information  on challenges faced by CSOs on an ad hoc 
basis through its own engagement with civil society. In addition, the Commission provides 
financial support under programmes to several projects led by consortia of CSOs that carry 
out civic space monitoring, in the EU and beyond26.  

The  Commission  further  relies  on  monitoring  activities  carried  out  by  other  actors, 
including NHRIs and international organisations27. The FRA plays a crucial role in this 
area  by  publishing  reports  on  civic  space,  highlighting  promising  practices,  supporting 
exchanges among international and national actors, and issuing recommendations in this 
area. 

22The term ‘transnational repression’ refers to a type of political repression conducted by a state outside its 
borders, see, for example, UN OHCHR brief on transnational repression.  
23See, for example, the EU Visa Code Handbook which provides specific guidance to assist HRDs. 
24See, for example, Resolution 2021/2103(INI) of the European Parliament, FRA, Protecting civil society – 
Update 2023. 
25See, EU enlargement package, covering Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North 
Macedonia, Serbia, Georgia, the Republic of Moldova, Ukraine and Türkiye.  
26See, for example: the Monitoring Action for Civic Space (MACS) project; the annual report on the state 
of play in relation to the Guidelines for EU Support to Civil Society in the Enlargement Region; the CSO 
Meter; and the EU System for an Enabling Environment for Civil Society. 
27See, for example, the State of the rule of law in Europe database maintained by the European Network of 
National Human Rights Institutions; the global monitoring carried out by Civicus; the 2024 Report of the 
UN OHCHR on Civil Society Space; the Open Government Partnership independent reporting mechanism; 
and the CoE Platform for the Safety of Journalists. 

9 

 
 
 
3.2. Providing responses at EU level  

Several pieces of EU legislation directly contribute to the protection of CSOs in the EU. 
For  example,  the  Anti-SLAPPs  Directive  and  Recommendation  provide  procedural 
safeguards to protect persons who engage in public participation, including CSOs, from 
manifestly unfounded claims or abusive court proceedings. To support implementation, 
the  Commission  will  support  training  for  justice  practitioners  on  SLAPPs  targeting 
CSOs  and  litigation  on  the  Charter,  in  particular  as  regards  freedom  of  association, 
expression and assembly.  
The Commission supports several protection measures that are carried out by dedicated 
CSO-led initiatives. A key EU-funded measure under the Citizens, Equality, Rights and 
Values  (CERV)  Programme  is  the  use  of  financial  support  to  third  parties  (FSTP), 
allowing CSOs that receive EU funds to act as intermediaries, that can build capacity and 
distribute funds to smaller or grassroots CSOs, including those that may need to respond 
to urgent or unexpected situations or emergencies. The EU has also recently launched a 
call to  strengthen the European Fact-Checking  Network, including  a protection scheme 
against harassment, recognising that the fact-checking community is increasingly attacked, 
accused of censorship and facing intimidation.  

In  the  context  of  enlargement  and  accession,  fostering  an  enabling  environment  and 
ensuring a stronger, more meaningful role for CSOs remains essential. When assessing the 
Functioning of Democratic Institutions (FDI), the environment in which CSOs operate is 
also examined. The 2020 adoption of the revised enlargement methodology underlines that 
all key reforms in the enlargement countries should be carried out in a fully transparent 
and  inclusive  way,  with  the  stakeholder  involvement.  Under  this  revised  methodology, 
candidate countries are required to draft a Roadmap on FDIs, that outlines specific actions 
to strengthen the enabling environment for civil society.  

3.3. Protecting the civic space at the national level 

Member  States  play  a  crucial  role  in  enabling  and  protecting  civic  space  at  the 
national, local and grassroots’ levels, and are often the first to provide concrete support to 
CSOs  that  are  at  risk.  Working  with  Member  States  to  promote  a  safe,  supportive  and 
enabling environment for CSOs throughout the EU is therefore an important priority for 
the Commission.  

Commission  Recommendation  (EU)  2023/2836  calls  on  Member  States  to  monitor 
developments in civic space using clear indicators and structured reporting frameworks. It 
encourages Member States to promote cooperation and coordination between all relevant 
stakeholders,  facilitate  access  to  special  procedures  or  channels  to  report  threats  and 
attacks,  and  systematically  document  and  analyse  the  operating  environment  in  which 
CSOs work. Several Member States have responded to the Commission Recommendation 
by adopting measures to strengthen civic space at national level. These include setting 
up  dedicated  national  strategies  to  strengthen  civic  engagement  cooperation  between 
citizens, CSOs and local authorities. Some have set up projects to reduce the administrative 
burden when exercising the right to assembly and association, or have put in place specific 
tax and other incentives for CSO financing28.  

28See, for example, Czechia’s National Strategy for Cooperation Between Public Administration and Non-
governmental  Non-profit  Organisations  2021-2030  and  its  Government  Council  for  Non-Governmental 
Non-Profit  Organisations;  Germany’s  Federal  Civic  Engagement  Strategy  and  its  Foundation  for  Civic 

10 

 
 
 
 
Several  Member  States  have  also  introduced  measures  to  protect  CSOs,  including 
through the general system of legal remedies available in the national administrative, civil 
and criminal justice systems. Some have set up or support dedicated counselling services, 
focusing specifically on (online) hate and discrimination29. National independent bodies 
and institutions  –  particularly  NHRIs, equality  bodies and ombudspersons  – can play a 
vital role in protecting CSOs at the national level, by amplifying their voices, raising public 
awareness, and supporting capacity-building efforts. These actions are a clear investment 
in ensuring an enabling environment for civil society and providing responses when they 
are at risk. 

3.4 Strengthening support and protection 

While important progress has been made at both EU and national level, stakeholders call 
for a more coordinated approach to CSO protection, and stronger more coordinated action 
is needed at Member State, EU and international level to monitor developments affecting 
CSOs, implement preventative measures in response to early-warning signs of shrinking 
civic space, and to protect CSOs against such threats and attacks. To that end and to map 
existing  monitoring  initiatives  at  local,  national,  EU  and  international  level,  the 
Commission  will  create,  in  cooperation  with  FRA,  an  online  knowledge  hub  on  civic 
space. This hub will facilitate access to existing monitoring and protection projects, tools 
and activities, including available protection measures.  

By consolidating information, the hub will help identify trends and gaps in  civic space 
monitoring  and  inform  relevant  actions  to  address  such  developments.  On  this  basis, 
further  protection  measures  could  be  explored,  such  as  urgent  assistance  to 
organisations  under  threat,  coordination  of  available  protection  measures  in  Member 
States, training and support on administrative, legal and logistical arrangements. Having 
an evidence-based knowledge of the situation on the ground is crucial to be able to ensure 
adequate response to the specific needs of CSOs and HRDs.  

It is important to ensure that EU and national policies and legislation promote an enabling 
environment for CSOs and to strengthen actions on monitoring and protection for CSOs. 
For example, impact assessments and implementation dialogues are important structured 
processes that help identify and evaluate the effects and consequences of planned policies 
and legislations. The Commission will continue assessing the impacts of its initiatives 
for civil society in impact assessments and evaluations within the Better Regulation 
framework.  

To  support  Member  States  in  the  further  implementation  of  Recommendation  (EU) 
2023/2836, the Commission will organise exchanges with Member States to further 
strengthen  support  and  protection  of  CSOs,  between  relevant  public  authorities  and 
stakeholders and support training at national level for justice professionals on SLAPPs and 
the  Charter.  In  the  enlargement  context,  the  Commission  will  strengthen  its  early 
warning systems, to allow for stronger responses on emerging threats. 

Engagement and Volunteer Work; Denmark’s 2022-2025 Civil Society  Strategy; Finland’s Civil Society 
Strategy  and  Advisory  Board  on  Civil  Society  Policy;  and  Portugal’s  Platform  of  Civil  Society 
Organisations/Citizens’ House. 
29See,  for  example,  Germany’s  federally  funded  projects  REspect!  and  Hate  Aid;  cooperative  alliances; 
federal infrastructure ‘toneshift – Network against Online Hate and Disinformation’. 

11 

 
 
 
The Commission will:  

-  Support  the  creation  of  an  online  knowledge  hub  on  civic  space  that  documents 
existing  civic  space  monitoring  initiatives,  reports  and  protection  resources,  at 
national, EU and international level, in cooperation with FRA.  

-  Explore  possibilities  to  strengthen  and  coordinate  available  protection  measures  for 

CSOs and HRDs at risk in the EU.  

-  Support training for justice professionals on SLAPPs that target CSOs and litigation 
on  the  Charter,  in  particular  as  regards  freedom  of  association,  expression  and 
assembly.  

-  Support  national  capacity-building  and  organise  exchanges  with  Member  States  on 
Commission Recommendation (EU) 2023/2836 concerning protection and support, in 
cooperation with relevant actors, including the EESC and FRA. 

-  Strengthen the EU’s early warning systems for detecting emerging signs of shrinking 

civic space in the enlargement countries. 

Member States are invited to: 

-  Develop or update dedicated national strategies or action plans to support, protect and 
empower civil society organisations and foster a safe and enabling civic space, in line 
with Commission Recommendation (EU) 2023/2836. 

The EU Agency for Fundamental Rights is invited to: 

-  Continue  its  monitoring  and  reporting  on  civic  space,  and  to  create  a  network  of 
representatives from national and EU institutions and bodies, CSOs, and international 
organisations  that  work  on  civic  space  monitoring  and  protection,  so  that  they  can 
exchange data, experience, and best practices.  

4.  ADEQUATE, SUSTAINABLE AND TRANSPARENT FUNDING FOR CIVIL SOCIETY 

As  part  of  an  overall  enabling  environment,  CSOs  need  adequate  and  sustainable 
support  to  carry  out  their  vital  work,  effectively  engage  with  decision-makers,  and 
continue  making  meaningful  contributions  to  our  societies.  In  this  respect,  long-term, 
predictable, and sufficient funding is key so as to provide the stability that CSOs need 
to operate independently and effectively.  

CSOs rely on funding from a combination of public and private sources to finance their 
activities. In the EU, the Commission and Member States support CSOs in different ways, 
including  through  operating  grants  and  project-based  funding.  CSOs  may  also  receive 
funding through individual donations and grants from private foundations, philanthropic 
organisations, or companies and businesses. Additional funding support can come from 
allocation schemes, which are operated by a few Member States, and allow taxpayers to 
designate directly through their income tax return a fixed percentage or amount of their 
income tax to be paid to a qualifying entity30.  

30Italy, Lithuania, Hungary, Portugal, Romania, Slovenia and the Slovak Republic operate such systems. 

12 

 
 
 
 
 
 
Funding  is  essential  across  the  full  spectrum  of  CSO  activities.  Furthermore,  civil 
society’s involvement in the development, implementation, monitoring and enforcement 
of  EU  legislation  and  policies  is  also  a  specific  funding  objective  of  several  EU 
programmes.  Several  EU  programmes  support  activities  carried  out  by  civil  society 
organisations in different policy areas31. These include Horizon Europe, including the New 
European Bauhaus Facility, European Social Fund Plus (ESF+), the CERV programme, 
Erasmus+,  the  Single  Market  Programme,  the  Asylum  Migration  and  Integration  Fund 
(AMIF), the Justice Programme, Links between actions of rural development (LEADER), 
the Union Anti-Fraud Programme and the LIFE programme. In the enlargement region, 
the  EU  provides  support  to  CSOs,  including  through  the  Instrument  for  Pre-Accession 
Assistance (IPA III). Complementary to EU funding is the European Economic Area and 
Norway Grants, which support CSOs in Europe, through the Active Citizens Fund. 

Partnership  and  transparency  are  key  principles  for  EU  funding.  The  European 
Union’s partnership principle requires close cooperation between public authorities and 
a wide range of partners, including social partners and CSOs, throughout the lifecycle of 
EU-funded programmes. This principle ensures that diverse stakeholders are involved in 
the preparation, implementation, monitoring, and evaluation of EU funds to improve their 
effectiveness, efficiency, and accountability32.  

Transparency, in line with existing legal requirements, remains the guiding principle in 
the management of the EU’s budget. There are specific safeguards and procedures in place 
to  ensure  that  EU  funding  to  any  type  of  beneficiary  (from  businesses  to  CSOs  and 
individuals)  is  transparent  and  accountable,  and  to  ensure  respect  for  EU  values, 
including by publishing information about recipients of EU funding in direct and indirect 
management33.  

Under the applicable rules, particularly the EU Financial Regulation, as well as contractual 
frameworks  for  grants,  strong  safeguards  are  in  place  to  ensure  that  any  entities  and 
projects whose objectives are incompatible with EU values do not receive support. 
To further strengthen these safeguards and requirements, the Commission has committed 
to consider the feasibility of adding risk indicators to strengthen EU values compliance 
checks, as part of the development of the Arachne risk scoring tool, if technically possible 
and legally compliant, and to explore the feasibility of increasing the frequency of updates 
made to publicly available data on its Financial Transparency System34. In addition, the 
Commission published a note providing guidance on the type of activities that the Union 
should not require as condition for funding as part of policy and legislation development, 
policy implementation, monitoring and enforcement. 

31These programmes can be run under direct, indirect or shared management. Approximately 80% of EU 
funding  sources  for  NGOs  are  managed  by  EU  countries  themselves.  Each  country  provides detailed 
information  about  funding and  application  procedures  on  the  websites  of  the  managing  authorities.  The 
award of EU funds under direct management follows publicly available calls. Based on the rules established 
in the EU Financial Regulation (EU, Euratom) 2024/2509, including the key principles of transparency and 
equal treatment, all valid funding applications are assessed against the eligibility, exclusion, selection and 
award criteria specified in the calls. For an overview, see Funding opportunities for NGOs.  
32The  principle  was  strengthened  by  including  the  possibility  to  allocate  an  appropriate  percentage  of 
resources coming for the administrative capacity building of social partners and CSOs and by highlighting 
the role the European Code of Conduct on Partnership in all stages of programming and implementation. 
33This information is publicly available on the Commission’s Financial Transparency System (FTS) website. 
The recent revision of the Financial Regulation introduced more ambitious transparency provisions, as from 
the post-2027 MFF period.  
34See Commission’s replies to the European Commission to ECA Special report 11/2025. 

13 

 
 
 
Further efforts are needed to ensure the accessibility of public funding across the EU. 
CSOs  report  that  public  funding  is  often  directed  primarily  to  state  institutions,  with 
limited  and 
inconsistent  access  for  CSOs,  especially  grassroots  and  smaller 
organisations35.  In  addition,  CSOs  working  on  topics  related  to  groups  that  are 
underrepresented, marginalised, and in vulnerable situations often struggle to access long-
term funding. 

The Commission has already taken several steps to simplify applicable procedures, reduce 
administrative burden and align those procedures with the needs of CSOs on the ground 
(e.g.  through  the  use  of  lump  sum  payments  and  multiannual  work  programmes).  The 
increased use of financial support to third parties, where EU funds are disbursed to smaller 
organisations  by  larger  CSOs,  has  allowed  EU  funding  to  reach  small  and  grassroots 
organisations that would not otherwise have been able to access EU funding, and in turn 
contributes  to  supporting  a  diverse  range  of  civil  society.  It  has,  for  example,  been 
instrumental  in  supporting  CSOs  working  to  protect  and  promote  EU  values  under 
programmes such as the EU DEAR and the CERV36.  

With an overall budget of over EUR 1.5 billion for the 2021-2027 period, the CERV 
programme occupies a unique space in the CSO funding landscape as it is often the only 
source of funding available to CSOs working on fundamental rights and values in the EU. 
Since 2021, the programme has supported more than 6 000 CSOs across all Member States 
and eligible non-EU countries. In the first four years of implementation, CSOs were the 
main beneficiaries of CERV having received 77% of the awarded funds. The Commission 
will  continue  providing  financial  support  to  CSOs  and  HRDs  at  risk,  including  by 
exploring  the  possibility  of  further  expanding  the  use  of  financial  support  to  third 
parties’ schemes across relevant EU funding programmes.  

The Commission’s proposal for the Multiannual Financial Framework (MFF) 2028-
203437, adopted on 16 July 2025, makes it clear that financial support for CSOs will remain 
a  priority  for  the  years  ahead,  across  a  range  of  policy  areas.  The  new  AgoraEU 
programme  will  build  on  the  success  of  the  current  Creative  Europe  and  CERV 
programmes  with  an  increased  total  indicative  budget  of  almost  EUR  9  billion.  By 
consolidating  support  for  culture,  media,  and  civil  society,  AgoraEU  will  enhance  the 
protection and promotion of fundamental rights, encourage democratic participation and 
resilience, promote cultural diversity and artistic freedom,  and foster a free and diverse 
information landscape.  

The proposed Erasmus+ programme will integrate the European Solidarity Corps, with an 
indicative budget of EUR 40.8 billion, and in addition to supporting the acquisition of 
skills,  it will  promote resilience, participation  in  democratic life  and civic engagement, 
through formal, non-formal and informal learning paths. The Horizon Europe programme 
will continue to support research aiming to strengthen democracy, including by promoting 
civic engagement. 

As part of the MFF proposal, the proposed National and Regional Partnership Plans 
aim  also  to  support  reforms  and  investment  to  build  civil  society  and  social  partners’ 
capacities to uphold EU values, citizenship education and youth participation. The MFF 
proposal also recognises and reaffirms the principle of partnership with CSOs, building on 
a multi-level governance approach. The EU Facility also proposed as part of this fund 

35Factual summary report. 
36Report on the interim evaluation of the CERV programme; and 2024 Charter Report.  
37See here for more information regarding the EU’s proposal for the 2028-2034 MFF. 

14 

 
 
 
provides, among other actions, funding for environment and climate actions, including to 
support and empower civil society organisations. More generally, once adopted, the MFF 
2028-2034  will  further  harmonise  and  simplify  procedures,  thereby  reducing  the 
administrative  burden  for  CSOs  on  the  ground.  The  Commission  therefore  invites  the 
European Parliament and the Council to consider the essential role of funding for CSOs in 
the upcoming negotiations on the 2028-2034 MFF.  

4.1. Mobilising actors and pooling resources 

EU funding is key to empowering CSOs, but it is clear that the funding needs of CSOs 
across the EU and the candidate countries can only be met through funding from different 
sources.  Beyond  public  donors  at  national,  EU  and  international  level,  there  is  also  an 
increasing  role  for  private  donors  (including  businesses)  and  philanthropic 
organisations  (individual  foundations,  pooled  funds  and  networks).  Donors  must 
themselves be able to operate in an enabling legal and regulatory environment that protects 
philanthropic  freedoms  and  facilitates  (cross-border)  donations.  This  includes  a  legal 
framework that recognises foundations and associations (including across borders), as well 
as and ensuring that CSOs and donors can benefit from tax incentives for donations that 
Member States wish to provide38.  

CSOs report that it is often difficult to find information on the different types of funding 
that are available and the entities that provide them. There is a need for more information 
sharing, dialogue and collaboration both between donors, and between donors and CSOs, 
to decide more strategically on the various ways to provide support and avoid duplication. 
The Commission will therefore facilitate dialogue between donors, and between donors 
and  CSOs,  including  via  the  Civil  Society  Platform,  in  order  to  exchange  experiences, 
identify funding gaps and better ensure complementarity of funding sources.  

CSOs  often  require  other  types  of  support  such  as  in-kind  assistance,  which  can  be 
provided  by  professionals  or  volunteers.  In  particular,  navigating  the  current  legal, 
administrative,  regulatory  and  technological  environment  in  which  CSOs  operate 
increasingly  requires  not  only  having  the  necessary  financial  means,  but  also  to  have 
specific skills and expertise. Legal support provided by pro bono lawyers can play a key 
role  in  this  regard39.  They  can  support  with  legal  and  compliance  questions  (e.g.  on 
applicable  employment  and  tax  obligations),  giving  CSOs  more  space  to  carry  out  key 
activities, as well as supporting those core tasks (e.g. through advocacy research, capacity 
building and training, and strategic litigation).  

Pro-bono  lawyers  can  also  support  CSOs  address  threats  and  attacks,  such  as  smear 
campaigns  and  SLAPPs,  including  by  representing  CSOs  in  court  and  providing  legal 
advice.  The  Commission  will  therefore  work  to  connect  communities  of  pro  bono 
lawyers with CSOs across sectors and in need of support, so as to facilitate support on 
administrative, mobility, legal and financial matters.  

The Commission will:  

38The non-discrimination principle establishes that Member States may not limit tax benefits to domestic 
charitable organisations or donations/bequests made to domestic entities, while excluding from such benefits 
comparable  foreign  charities  or  donations/bequests  to  comparable  foreign  charities.  See  Council 
Recommendation  C(2023)  1344  on  developing  social  economy  framework  conditions  and  related  Staff 
Working Documents. 
39See, for example, the services provided by PILnet.  

15 

 
 
 
-  Facilitate dialogue between donors, and between donors and CSOs, including via the 
Civil  Society  Platform,  in  order  to  exchange  experience,  identify  funding  gaps  and 
better ensure complementarity of funding sources. 

-  Work to connect communities of pro bono lawyers with CSOs across sectors and in 
need of support, as to facilitate support on administrative, mobility, legal and financial 
matters. 

-  Explore the possibility of further expanding the use of financial support to third parties 

schemes across relevant EU funding programmes, where appropriate.  

Member States are invited to: 

-  Establish  and maintain an enabling legal  and regulatory environment  for CSOs and 
donors,  including  philanthropy,  including  through  the  implementation  of  the  non-
discrimination  principle  and  the  broader  Council  Recommendation  on  developing 
social economy framework conditions. 

-  Complement  EU  funds  for  CSOs  with  domestic  support  mechanisms,  in  line  with 

Commission Recommendation (EU) 2023/2836. 

5.  CIVIL SOCIETY IN EU EXTERNAL ACTION 

The EU’s commitment to engage with, protect and support civil society is also reflected 
in its external action. The EU works closely with civil society to advance the realisation 
of human rights for all – by applying universal norms, guided by international human 
rights law. CSOs provide important contributions to strengthening democracy and resilient 
societies globally. For example, they often act as implementing partners for EU-funded 
projects 
in  development  cooperation,  humanitarian  aid,  and  capacity-building 
programmes, and monitor trade and association agreements to ensure that human rights 
and sustainable development clauses are upheld.  

5.1. Engaging with CSOs internationally 

CSOs  are  regularly  invited  to  share  their  expertise  on  the  EU’s  external  policies  and 
contribute to Human Rights Dialogues that the EU conducts on a regular basis with partner 
countries and regions.  At country-level,  EU delegations  play a crucial role in  engaging 
with CSOs and HRDs, and can monitor the situation of democracy, human rights and civic 
space locally.  

The EU NGO Human Rights Forum has for decades provided a regular opportunity for 
CSOs  and  human  rights  defenders  to  discuss  international  partnerships,  human  rights 
issues, and address challenges to civic space globally, directly with EU counterparts. The 
Policy Forum on Development and the two Civil Society Facilities for the Southern and 
Eastern Neighbourhood also provide fora for engagement with CSOs across a range of EU 
policies. The Commission is committed to strengthen its support to civil society across the 
world, including to enable the participation of civil society in multilateral fora. 

The EU is engaging with CSOs on the roll-out of the EU’s Global Gateway strategy and 
has set up the Global Gateway CSOs and Local Authorities Advisory Platform to this end. 
CSOs  also  play  an  important  role  in  the  monitoring  and  implementation  of  trade 
agreements, in particular through Domestic Advisory Groups. The EU has, together with 
Member States and civil society, developed Roadmaps for engagement with civil society 

16 

 
 
 
 
at  partner  country  level,  with  the  aim  of  establishing  sustained  and  structured  dialogue 
between these actors. In that respect, the Commission remains committed to supporting 
and  promoting  locally-led  CSO  responses  and  equitable  partnerships  in  humanitarian 
settings. This will be done through supporting and strengthening CSOs capacities, through 
increasing  the  amount  of  humanitarian  funding  to  local  CSOs  and  by  progressively 
devolving more authority to local responders, including civil society. 

Across these mechanisms, the engagement with CSOs and HRDs takes a security-sensitive 
approach that  considers  the particular  circumstances of interlocutors, to  ensure that the 
engagement itself does not expose the organisations to additional risks.  

5.2. Protecting and supporting CSOs globally 

The EU maintains a long-standing commitment to protecting and supporting civil society 
and  civic  space  globally  and  at  country  level.  This  is  reflected,  for  example,  in  the 
Communication on Europe’s engagement with Civil Society in external relations, the EU 
Action Plan on Human Rights and Democracy 2020-202740, the EU Guidelines on Human 
Rights,  and  on  Human  Rights  Defenders,  and  the  2019  Council  Conclusions  on 
Democracy,  as  well  as  in  the  application  of  the  human-rights  based  approach  in 
international partnerships41. Supporting CSOs and HRDs, and enhancing participation in 
public and political life, especially of women and youth, are core priorities of EU foreign 
policy. 

To further advance these objectives, the EU cooperates with international organisations 
and  fora  that  develop  norms  on  civic  space.  These  include  the  Council  of  Europe,  the 
United  Nations,  the  Organisation  for  Economic  Cooperation  and  Development,  and 
the Organization  for  Security  and  Co-operation  in  Europe’s Office  for  Democratic 
Institutions and Human Rights.  

The EU’s Annual Reports on Human Rights and Democracy is an important instrument to 
monitor the situation of CSOs and civic space globally. Other mechanisms, such as the 
Election  Observation  Missions,  enable  the  EU  to  assess  the  electoral  environment, 
including conditions for domestic civil society observation, and it engages broadly with 
civil society throughout these missions.  

Supporting the capacity and the resilience of CSOs, especially grassroots organisations, to 
meaningfully  engage  in  policy-making  processes  is  a  priority  in  the  Eastern 
Neighbourhood, particularly in the context of a shrinking civic space42. The Pact for the 
Mediterranean  underlines  the  importance  of  maintaining  a  vibrant  civil  society  in  the 
Southern  Neighbourhood,  and  aims  to  empower  civil  society,  youth  and  local 
communities, to build their capacities and to foster their participation in local or regional 
dialogues.  

The  EU  has  stepped  up  its  action  to  protect  civic  space  and  human  rights  defenders, 
including when they are targets of transnational repression offline and online. For example, 

40The  extension  of  the  Action  Plan  for  Human  Rights  and  Democracy  was  accompanied  by  Council 
conclusions reaffirming EU support to civil society and human rights defenders as a key priority in the EU’s 
foreign policy. 
41Commission  Staff  Working  Document,  Applying  the  Human  Rights  Based  Approach  to  international 
partnerships. 
42This  includes  support  to  CSOs,  in  particularly  grassroots’  organisations,  in  some  countries  within  the 
Eastern Partnership (EaP) region. 

17 

 
 
 
the  EU  has  launched  the  EU  System  for  Enabling  Environment  (EU  SEE)43  for  civil 
society, which supports CSOs in over 80 countries to monitor their civic space, give early 
warnings of restrictions, and contribute to responses. 

The Commission has also provided guidance via its Visa Code Handbook, including on 
issuing visas for HRDs, and provides training on this44. Together with Member States, it 
will continue promoting the Handbook and its implementation, in particular in relation to 
the guidance on the particular needs of HRDs. 

5.3. Providing funding, building partnerships 
Since  2013,  the  EU  has  supported  the  European  Endowment  for  Democracy  (EED)45, 
which provides crucial support and protection for CSOs and HRDs in crisis and repressive 
environments. A specific EU-funded protection mechanism is the EU’s Human Rights 
Defenders Mechanism, which has been set up to support human rights defenders in third 
countries46, providing various forms of support (e.g. physical and digital protection; legal 
and  medical  support;  trial  and  prison  monitoring;  capacity  building;  advocacy;  and 
temporary relocation).  

Funding is provided to CSOs through the Neighbourhood, Development and International 
Cooperation Instrument (NDICI), for example, by grants provided through the thematic 
programmes on Human Rights and Democracy and Civil Society.  

Under the Commission’s MFF proposal for 2028-2034, cooperation with and support to 
CSOs  in  partner  countries  remains  a  priority  under  the  proposed  Global  Europe 
Instrument.  This  includes  the  continued  commitment  to  upholding  human  rights  and 
democracy globally. 

5.4. Looking ahead, developing resilience  

The EU will continue to support civic space and an enabling environment  for civil 
society worldwide, and monitor human rights, democracy, and civic space through existing 
mechanisms. It will also continue to provide support and protection to CSOs and HRDs at 
as 
transnational 
risk, 
ProtectDefenders.eu and the European Endowment for Democracy. 

repression, 

initiatives 

including 

through 

from 

such 

The EU is scaling up its engagement at global and regional levels with civil society around 
key  processes  such  as  regional  Summits.  The  EU  will  continue  to  engage  in  regular 
dialogue with CSOs as key partners in its human rights, democracy, and foreign policy 
work, and will consult them and human rights defenders in preparing the next EU Action 
Plan  on  Human  Rights  and  Democracy.  It  will  also  organise  joint  high-level  civil 
society  Structured  Dialogues  in  partner  regions,  for  example  in  the  framework  of  the 
African Union-EU Summit. 

Under the  Pact for the  Mediterranean, several  initiatives  will empower key actors to 
concretely  support  their  communities,  notably  by  establishing  a  Youth  Parliamentary 

43The EU SEE is a partnership programme that seeks to support civil society to thrive globally by preventing 
efforts to restrict civic space.  
44The training courses are conducted notably through a project co-financed by the European Commission 
under  the Border  Management  and  Visa  Instrument (BMVI)  and  developed  by  the  Swedish  Migration 
Agency. 
45The EED is an independent, grant-making organisation, established in 2013 by the EU and its member 
states as an autonomous International Trust Fund to foster democracy in the European Neighbourhood, the 
Western Balkans, Turkey and beyond. 
46The mechanism has supported over 85,000 HRDs since 2015. 

18 

 
 
 
Assembly  for  the  Mediterranean;  supporting  the  development  of  a  Mediterranean  civic 
service;  empowering  women-led  organisation  as  pivotal  influencers  within  their 
communities;  and  enhancing  cooperation  mechanisms  at  local  level  to  promote  social 
inclusion including for people in vulnerable situations.  

The Commission will:  

-  Strengthen engagement with civil society across all policy areas of EU external action, 

including through EU Delegations.  

-  Consult  CSOs  on  an  enabling  environment  for  civil  society  in  the  context  of  the 

preparations of the next EU Action Plan on Human Rights and Democracy.  

-  Strengthen its support to civil society across the world, including to enable civil society 

participation in multilateral fora.  

-  Organise a joint high-level civil society Structured Dialogue with at the African Union-
EU Summit and continue promoting such joint dialogues with its regional partners.  

-  Strengthen  its  engagement  under  the  Team  Europe  Democracy  Initiative  to  discuss 

emerging and evolving threats to civic space.  

-  Conclude  new  Framework  Partnership  Agreements  to  build  capacity  and  connect 

CSOs through targeted initiatives in its partner regions.  

Member States are invited to: 

-  Coordinate with EU Delegations on the ground to ensure effective implementation of 
the EU Action Plan on Human Rights and Democracy and of the EU Guidelines on 
human rights, and to support the roll-out of the new generation (2025-27) of Country 
Roadmaps for engagement with CSOs.  

-  Raise awareness of and provide capacity building, including through new trainings, on 
the  Visa  Code  Handbook  guidance  on  visa  facilitation  for  human  rights  defenders 
seeking protection in the EU territory. 

6.  CONCLUSION 

Civil  society  is  a  cornerstone  of  democracy  across  the  EU  and  beyond.  Civil  society 
contributes to policymaking, partnering with national government and EU institutions in 
the implementation of policies and delivering a broad range of support and services across 
all sectors of society. The active participation of civil society in an enabling civic space, 
free from threats and attacks, helps promote and safeguard the values on which the EU is 
founded. 

The  EU  Strategy  for  Civil  Society  lays  the  groundwork  for  strengthened  engagement, 
support  and  protection  and  an  empowered  civil  society.  It  puts  forward  a  coherent  and 
mutually reinforcing set of measures to effectively improve the protection of and support 
for civil society, and to allow effective and meaningful engagement with decision-makers 
at both EU and national level, as well as in the EU’s external action.  

The implementation of this Strategy requires efforts at all levels. EU institutions, bodies 
and agencies as well as Member States and enlargement countries, all need to contribute. 
The  Strategy  recognises  that  civic  space  in  Member  States  and  enlargement  countries 
forms a continuum and shared democratic space, and a vibrant civil society in an enabling 
civic  space  are  essential  for  progress  towards  accession.  At  global  level,  the  EU  will 
19 

 
 
 
 
continue  cooperating  with  its  partner  countries  and  with  international  organisations  to 
create an enabling environment for civil society and foster stronger engagement, protection 
and support to CSOs across the world.  

The Commission will regularly convene discussions with Member States, civil society, the 
European  Economic  and  Social  Committee,  the  EU  Agency  for  Fundamental  Rights, 
international organisations, and other relevant actors to support the implementation of the 
actions put forward and take stock of progress. 

The Commission invites the European Parliament and the Council, as well as the European 
Economic  and  Social  Committee  and  the  Committee  of  Regions,  to  support  the 
implementation of this Strategy. Support for civil society organisations will need to remain 
strong in the next MFF, with efforts to simplify funding processes, reduce administrative 
burdens, and improve access through user-friendly digital tools. 

20