REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 2025 Annual Report on the implementation of the European Union's External Action Instruments in 2024
Date: 2025-12-03
Institutions: Directorate-General for International Partnerships, European Commission
Subjects: EU aid, EU migration policy, Russo-Ukrainian issue, activity report, common foreign and security policy, development policy, humanitarian aid, international cooperation, the EU's international role, twin transition

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 3.12.2025  COM(2025) 741 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL    2025 Annual Report on the implementation of the European Union's External Action Instruments in 2024               {SWD(2025) 390 final}  
 
 
Table of Contents 
FOREWORD ............................................................................................................................................. 1 

GLOBAL COMMITMENTS ........................................................................................................................ 3 

The EU response to Russia’s war of aggression against Ukraine ........................................................ 3 

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

Global Gateway – fostering sustainable development ....................................................................... 4 

Humanitarian assistance ..................................................................................................................... 4 

Multilateralism and global challenges ................................................................................................ 5 

THEMATIC OVERVIEW ............................................................................................................................. 6 

Human development .......................................................................................................................... 6 

Green transition .................................................................................................................................. 6 

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

Sustainable growth and jobs ............................................................................................................... 7 

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

Democratic governance and human rights, peace and security ........................................................ 9 

GLOBAL REACH...................................................................................................................................... 10 

Sub-Saharan Africa ............................................................................................................................ 10 

Asia and the Pacific ........................................................................................................................... 10 

Americas and the Caribbean ............................................................................................................. 11 

EU Enlargement (Western Balkans, Türkiye, Ukraine, Republic of Moldova, Georgia) .................... 12 

European Neighbourhood ................................................................................................................ 12 

European Neighbourhood East (Armenia, Azerbaijan, and Belarus) ............................................ 12 

European Neighbourhood South .................................................................................................. 12 

Overseas countries and territories (OCTs) ........................................................................................ 13 

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FOREWORD 

2024 was a significant year for the European Union’s external action. Throughout the year, the EU 
remained  committed  to  addressing  global  challenges,  promoting  its  interests  and  values  and 
advocating for democracy, human rights and multilateralism on the world stage. This commitment 
extends across several key areas, including cooperation on international partnerships, trade, security 
and defence, neighbourhood policy, humanitarian aid and civil protection.  

We live in a world that is redefining itself. Some nations are seeking to impose their influence through 
force, while others look to leverage their burgeoning or established economic power to reshape global 
dynamics.  Many  emerging  powers  are  asserting  themselves  on  the  world  stage  with  increasing 
confidence.  

This shifting landscape marks  a potential generational transition from cooperation to  competition, 
with the possible proliferation of conflicts and use of brute force to achieve political objectives. From 
Russia’s continued war of aggression against Ukraine to conflicts in the Middle East, in the eastern 
Democratic Republic of the Congo and elsewhere, 2024 saw an erosion of peace and security.  

In  this  context,  the  EU  has  started  to  reposition  itself  on  the  global  stage.  The  focus  has  been  on 
supporting  Ukraine,  strengthening  European  defence  and  security,  and  reinforcing  international 
partnerships. 

The  EU  increasingly  stands  out  as  the  main  supporter  of  multilateralism  and  the  rules-based 
international order to advance a positive global agenda that leaves no one behind. The EU engaged in 
discussions on reform of the multilateral system to turn it into a modern and efficient system. The 
successful adoption of the United Nations (UN) Pact for the Future at the UN General Assembly in 
September 2024 was a landmark.  

Our unity is our strength. Together, the EU and its Member States are investing in our alliances and 
international  partnerships.  We  are  establishing  a  new  economic  foreign  policy  that  focuses  on 
economic security, trade and investment, to boost EU competitiveness; expanding our defence and 
security  partnerships;  and  using  the  Global  Gateway  sustainable  investment  strategy  to  deliver 
tangible benefits to people around the world, and at home. The Global Gateway strategy’s aim is to 
narrow the global investment gap for sustainable development by supporting green energy, transport, 
and digitalisation projects, but also by strengthening health, education and research systems across 
partner countries worldwide. 

This report outlines the amount of work that the EU institutions, Member States, and development 
finance institutions carry out in a ‘Team Europe’ spirit to achieve these objectives. It documents our 
efforts  towards  sustainable  and  equitable  solutions  in  partner  countries  that  are  in  line  with  our 
values. These actions cover poverty eradication, sustainable development, humanitarian assistance, 
civil protection, free and fair trade, security, peace and stability, promoting human rights, democracy 
and  the  rule  of  law,  gender  equality  and  women’s  empowerment,  as  well  as  addressing  other 
inequalities.  A  full  range  of  initiatives  also  support  partner  countries  tackling  climate  change  and 
protecting biodiversity. 

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2024 was a challenging year, but the EU and its Member States worked with our international partners 
to  build  stronger  and  more  resilient  partnerships.  We  are  creating  momentum  as  we  roll  out  the 
Global Gateway initiatives, our Economic and Investment Plans with the Eastern Partnership, Southern 
Neighbourhood and the Western Balkans, and our full portfolio of projects. Through our Team Europe 
approach, the EU continues to deliver solid and sustainable results that benefit people and the planet.  

High Representative               Commissioner        
/Vice-President    
KAJA KALLAS  
Foreign Affairs &  
Security Policy  

            DUBRAVKA ŠUICA 
            Mediterranean  

  Commissioner  

              Commissioner  

      Commissioner 

  MARTA KOS  
  Enlargement  

              JOZEF SÍKELA   
              International    
              Partnerships    

      HADJA LAHBIB 
      Equality, 
      Preparedness and 
      Crisis Management 

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GLOBAL COMMITMENTS 

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

Throughout  2024,  the  EU  continued  to  provide  Ukraine  with  unprecedented  political,  financial, 
economic, humanitarian, legal and military support while deploying sanctions to weaken Russia’s war 
machine. The EU’s new Ukraine Facility will provide Ukraine with up to EUR 50 billion of predictable 
support for 2024-2027 to assist its recovery, reconstruction and modernisation. 

In 2024, the EU mobilised a total of EUR 19.6 billion under the three pillars of the facility and EUR 16.4 
billion were disbursed. The Ukraine Investment Framework saw the first EUR 1.4 billion in grants and 
guarantee agreements signed in June at the Ukraine Recovery Conference in Berlin. In July, EUR 1.5 
billion generated by immobilised Russian assets was made available to Ukraine. 

Since 2022, the EU and its Member States have also provided over EUR 47.3 billion of military support 
to Ukraine, of which EUR 6.1 billion were via the European Peace Facility. Additionally, over EUR 2 
billion  have  been  mobilised  via  the  Solidarity  Lanes,  of  which  EUR  1.5  billion  originated  from  the 
Connecting Europe Facility (CEF) Transport(1). 

During  2024,  the  Commission  allocated  EUR  165  million  in  humanitarian  assistance  for  Ukraine. 
Ukraine  continues  to  benefit  from  the  largest,  longest  and  most  complex  Union  Civil  Protection 
Mechanism operation in the EU’s history. The Temporary Protection Directive for people fleeing the 
war was extended until March 2026. 

In 2024, the EU adopted three additional packages of sanctions against Russia. By the end of the year, 
a total of 15 packages of sanctions had been adopted listing over 2 300 individuals and entities.  

The Autonomous Trade Measures, fully liberalising trade between the EU and Ukraine, were extended 
until  June  2025,  supporting  Ukraine’s  economy  to  the  tune  of  EUR  2  billion  per  year  in  additional 
export revenue. 

Via the European Instrument for Nuclear Safety Cooperation, the EU continued nuclear safety-related 
activities, rebuilding and restoring Ukraine's nuclear and radiation protection infrastructure including 
at the Chornobyl site. 

The EU: a strong global actor 

In 2024, amid multiple overlapping crises, geopolitical shifts and further strains on multilateralism, the 
EU redoubled its efforts to strengthen its international partnerships – particularly through the Global 
Gateway strategy.  

The EU worked to strengthen its defence and security. The EU also worked with candidate countries, 
including Ukraine,  on necessary  reforms, and with potential candidates  to prepare  for their  future 
accession to the EU.  

During the year, the EU assisted people in need and responded to natural hazards and human-made 
disasters  around  the  world,  consolidating  its  leading  role  in  global  assistance.  The  EU  is  providing 
humanitarian aid for, and remains committed to finding solutions to the various crises in the Middle 
East. 

1 Supports the development of transport infrastructure in response to critical connectivity needs with Ukraine and Moldova. 

3 

 
 
 
In  2024,  the  EU  and  its  Member  States  collectively  remained  the  largest  provider  of  official 
development  assistance  (ODA)  with  EUR  88.7  billion  representing  42%  of  global  ODA(2)  based  on 
preliminary  OECD  data.  Latest  figures  also  show  that  in  2022  the  EU  was  the  world’s  biggest 
contributor of Aid for Trade with EUR 22.2 billion – 36% of all Aid for Trade given globally(3). 

Global Gateway – fostering sustainable development 

Through its Global Gateway strategy, the EU, its Member States, and their development banks and 
financing institutions are set to mobilise some EUR 300 billion by 2027 to shape a fairer, more resilient, 
and  sustainable  world.  Between  2021  and  2023,  the  EU,  Member  States,  EIB  and  EBRD  mobilised 
investments worth EUR 179 billion in support of Global Gateway implementation. Out of these, EUR 
50 billion were supported by the EU and EUR 129 billion were mobilised by EU Member States, EIB 
and EBRD. 

Considerable progress has already been achieved with over 250 flagship projects deployed around the 
world. Thematically, 50% of the projects are in the areas of climate and energy, 20% in transport, 13% 
in digital, 10% in health, and 7% in education and research. The geographic breakdown shows that 
45% of the projects are in Sub-Saharan Africa, 20% in the Americas and the Caribbean, 18% in the 
Neighbourhood and Enlargement regions, 15% in Asia and the Pacific, and 2% are regional or global. 

In 2024, the EU remained at the forefront of efforts to advance the Sustainable Development Goals 
(SDGs)  and  to  meet  the  Paris  Agreement’s  targets.  The  Global  Gateway  strategy  is  the  EU’s  main 
contribution to pursue the 2030 Agenda and its SDGs in external action, aiming  to mobilise resources  
to achieve these goals and significantly contribute to the international efforts.  

The EU reinforced its Global Gateway investment offer, while also maintaining dedicated resources to 
engage in fragile and conflict-affected settings. The EU sought to tackle the root causes of fragility and 
migration by integrating Global Gateway projects with the Humanitarian-Development-Peace nexus 
approach. 

Humanitarian assistance 

In 2024, the EU provided humanitarian aid to people in 116 countries worldwide, aimed to support 
the most vulnerable populations hit by both human-induced and natural disasters. Together, the EU 
and its  Member  States are leading humanitarian aid donors, providing around 27.4% of the global 
committed  humanitarian  aid,  with  an  annual  budget  exceeding  EUR  2.48  billion.  The  EU  provided 
assistance to over 259 million people(4) in 2024, both in high visibility crises such as Ukraine, Palestine*, 
and Sudan, as well as in forgotten crises such as in Haiti, Mozambique, or to the Sahrawi crisis. 

In  addition,  the  Commission  also  deploys  its  own  emergency  humanitarian  response  tools.  The 
European Humanitarian Response Capacity responded to 16 crises affecting 17 countries, delivering 
more than 5 300 metric tonnes of humanitarian aid. The EU mobilised some EUR 38.9 million from the 
Emergency Toolbox to respond to sudden onset disasters. 

2 Global ODA is defined here as including the ODA reported by the EU collectively and all other donor countries. 
3 These are collected from OECD sources that have a 2-year lag.  
4 Estimated number of people reached by EU funded humanitarian assistance as reported by partners and calculated in EVA 
Actions. 
* This designation shall not be construed as recognition of a State of Palestine and is without prejudice to the individual 
positions of the Member States on this issue. 

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The EU’s Emergency Response Coordination Centre responded to 23 requests from third countries. In 
2024, the Union Civil Protection Mechanism responded to major crises in the Middle East, the Marburg 
virus outbreak in Rwanda, and evacuation and repatriations from Haiti and Vanuatu. 

Multilateralism and global challenges 

In  2024,  the  EU  continued  to  stand  up  for  the  rules-based  international  order,  multilateralism, 
international  law  including  international  humanitarian  law,  accountability,  human  rights,  and 
democracy.  In  September,  world  leaders  adopted  the  UN  Pact  for  the  Future,  the  Global  Digital 
Compact and the Declaration on Future Generations. These aim to make the multilateral system – 
with the UN at its core – more effective and inclusive and better equipped to meet current and future 
challenges. 

The Pact is a major achievement for multilateralism. The EU contributed substantially to it by pushing 
for an ambitious outcome reflecting EU values and priorities.  

The global energy transition, tackling climate change, and protecting biodiversity continued to be key 
priorities in 2024. The EU and its Member States are the world’s largest provider of public international 
climate  finance(5).  Three  major  multilateral  negotiations  took  place  during  2024:  the  UN  Climate 
Change  Conference  in  Azerbaijan,  the  UN  Desertification  Conference  in  Saudi  Arabia,  and  the  UN 
Biodiversity  Conference  in  Colombia.  At  the  UN  Biodiversity  Conference,  the  EU  unveiled  new 
initiatives worth almost EUR 160 million to support partner countries in safeguarding biodiversity. 

The EU sustained its ocean diplomacy efforts and maintained a high level of commitment towards the 
BBNJ Agreement(6).  The EU committed EUR 40 million as part of a global ocean programme to support 
African,  Caribbean  and  Pacific  partners  in  their  efforts  to  ratify  and  implement  the  Agreement  – 
making the EU the largest donor in support of High Seas protection globally. 

The EU played a major role in the launch of the Global Alliance against hunger and poverty at the G20 
Summit in Rio de Janeiro in November 2024. The G7 Summit in June hosted in Italy launched the Apulia 
Food Security initiative and showcased the ongoing work on the Partnership on Global Infrastructure 
and Investment.  

5 Latest available data. Next figures will be available as of end of the year 2025. 
6 Agreement on the conservation and sustainable use of marine Biodiversity of areas Beyond National Jurisdiction (BBNJ), 
adopted in June 2023. 

5 

 
 
 
 
 
THEMATIC OVERVIEW 

Human development  

Poverty eradication remains at the heart of the Commission’s international partnerships. Currently, 
8.5% of the world’s population (nearly 700 million people) live below the extreme poverty line of USD 
2.15  per  day.  Two  regional  Team  Europe  initiatives  directly  focus  on  poverty  reduction:  ‘Social 
Protection  in  Sub-Saharan  Africa’,  launched  in  2024,  and  ‘Inclusive  and  Equal  Societies’  in  Latin 
America and the Caribbean. 

Food security and nutrition have been at the centre of geopolitical and geo-economics agendas since 
the  start  of  Russia’s  war  of  aggression  against  Ukraine.  With  294  million  experiencing  acute  food 
insecurity(7) across 59countries and territories, and famine being declared for the first time since 2017 
in  five  areas  of  Sudan.  The  EU  spent  around  EUR  730  million  in  humanitarian  food  and  nutrition 
assistance in 2024, while Global Gateway spearheaded investments in more resilient and sustainable 
agriculture and food value chains. 

In 2024, the EU’s humanitarian health assistance accounted for EUR 357 million worldwide, following 
a  cross-sectoral,  needs-based  and  integrated  approach.  This  includes  fostering  people’s  access  to 
primary  healthcare,  reproductive  health  and  medical  responses  to  gender-based  violence,  mental 
health and psychosocial support, trauma care, and rehabilitation. 

Education is key enabler of all SDGs. In 2024, EU investments focused on teachers and learning, as well 
as on equitable and inclusive education systems that contribute to partner countries’ digital and green 
transitions, including through the international dimension of Erasmus+. The EU and its Member States 
helped reinforced these objectives in 80 partner countries by investing in the ‘Global Partnership for 
Education’ and ‘Education Cannot Wait’ funds. Additionally, 10% of the annual initial EU humanitarian 
aid budget was spent on education in emergencies. 

In April 2024, the EU organised a Global Gateway High-Level Education Event, highlighting the EU’s 
role in transforming global education and bridging skills gaps. 

The EU continued to support global efforts to prevent and eliminate gender-based violence, including 
through new ‘Spotlight Initiative’ country programmes in Ecuador, Uganda, Sierra Leone, and Liberia, 
and through a regional programme in Africa. 

In 2024, the EU stepped up its commitment to support improved water access, sanitation and hygiene 
with Global Gateway projects implemented in some 50 countries.  

Green transition 

In  line  with  the  European  Green  Deal,  the  Commission  continued  to  support  partner  countries  to 
increase sustainable energy access and decarbonise the energy sector while creating local jobs. 

In  November  2024,  European  Commission  President  von  der  Leyen  and  South  African  President 
Ramaphosa launched the campaign ‘Scaling up Renewables in Africa’. Other examples of EU action 
include  the  regional  initiative  in  Latin  America  for  electricity  integration,  the  Peru-Ecuador 

7 Global Report on Food Crises 2024 

6 

 
 
 
interconnection, a European Investment Bank financing facility for Central America, and the launch of 
the Clean Energy Ministerial on promoting sustainable lifestyles, fairness and access to clean energy 
technologies(8). 

The EU is committed to promoting sustainable consumption and production. At the global level, the 
EU  has  supported  activities  to  pilot  circularity  in  global  value  chains,  including  through  the  UN 
Partnership on Green Economy, the Green Economy Coalition, the Green Growth Knowledge Platform, 
and the Switch to Circular Value Chains programme. In 2024, the EU provided support to over 100 
countries worldwide for sustainable consumption and production and the circular economy. 

In 2024, the EU continued to be a global leader in the green transition. By participating at COP29 of 
the  UN  Climate Change  Conference,  parties  agreed to  a  new  collective  quantified  goal  for  climate 
finance to support developing countries. In addition to these efforts, the EU is also actively involved 
in the negotiations on the implementation of the UNFCCC Just Transition Work programme. 

Ahead of the third UN Ocean Conference, it also adopted additional programmes to strengthen ocean 
governance, sustainable blue economy and conservation in the Pacific (EUR 20 million), the Western 
Indian Ocean (EUR 58 million) and Central Africa (EUR 42 million).  

In 2024, the Commission mobilised almost EUR 1 300 million for biodiversity, and the Team Europe 
initiative on Deforestation-free Value Chains was scaled up to EUR 86 million.  

Digitalisation, science, technology, innovation and infrastructure 

The  EU  continued  to  support  research  and  innovation  ecosystems  in  developing  countries.  This 
support focused on building capacity and policy frameworks, as well as innovation and research to 
take informed investment decisions while reinforcing EU tech competitiveness. For example, a Centre 
of Excellence for Pharmacovigilance was established at the University of the Western Cape in South 
Africa to offer training to regulators and researchers in the region.  

In 2024, the EU continued to strengthen its partnerships to boost secure and human-centric digital 
transformation with partner countries. Under the Global Gateway strategy, the EU promotes the use 
of  trusted  suppliers  of  digital  technologies.  Regional  programmes  in  Sub-Saharan  Africa  and  Latin 
America and the Caribbean are helping to create a regional Digital Single Market. The Digital Trade 
Platform with Central America made progress. Within the Team Europe initiative on Data Governance 
in Africa, the EU set up a Digital Investment Facility engaging to support promising data centre and 
Internet Exchange Point projects in Africa. 

The EU’s Digital for Development (D4D) Hub expanded its role in strengthening the ‘Team Europe’ 
approach for digital cooperation and partnerships and continued facilitating joint digital interventions 
with the private sector, civil society, and academia. 

Through the Global Gateway strategy, the EU also supported multi-sectoral investments in road, rail, 
maritime and air transport, through a 360-degree approach, in all regions of interventions. 

Sustainable growth and jobs 

In line with the 2024-2029 political guidelines and the increased focus of foreign economic policy on 
economic security, trade, and investment in partnerships, 2024 was a transition year. The EU scaled 

8 Sustainable Lifestyles, Fairness and Access to Clean Energy Technologies | Clean Energy Ministerial 

7 

 
 
 
up its action on critical raw materials with the Critical Raw Materials Act entering into force on 23 
May. Five new partnerships for sustainable raw materials value chains were concluded with Australia, 
Norway, Rwanda, Serbia, and Uzbekistan, adding to the existing nine partnerships. 

The  High-level  Expert  Group,  mandated  by  the  Commission  as  an  independent  advisory  body, 
submitted its final report on scaling up sustainable finance in low-and middle-income countries (9). The 
HLEG identified challenges and opportunities in sustainable finance and provided recommendations 
for the Commission’s work with partner countries. 

Creating decent jobs and improving working conditions remained a cross-cutting priority. The Team 
Europe initiative ‘Investing in Young Businesses in Africa’ is a Global Gateway flagship that supports 
early-stage businesses and young entrepreneurs – especially women – in Africa to launch, consolidate, 
and grow sustainable and inclusive businesses. 

Migration and forced displacement 

In 2024, irregular border crossings into the EU significantly decreased on the Central Mediterranean 
route.  However,  irregular  arrivals  increased  on  the  Atlantic,  Western,  and  Eastern  Mediterranean 
routes. 2024 saw unprecedented, forced displacement levels, mainly linked to conflicts, including in 
Sudan,  Gaza,  and  Mali,  but  also  increasingly  due  to  climate-linked  disasters,  resulting  in  over  120 
million forcibly displaced people by the end of June.  

The EU took further steps to enhance its strategy on migration and asylum, with the adoption of the 
EU Pact on Migration and Asylum in May 2024(10). The external dimension of the pact tasks the EU to 
engage with partner countries through a strategic and comprehensive approach to address areas of 
concern, with a strong focus on migratory routes towards the Union (whole-of-route approach). Its 
implementation  is  closely  coordinated  in  a  ‘Team  Europe’  approach  with  EU  Member  States. 
Cooperation with key partner international organisations, such as the International Organisation for 
Migration and UNHCR, has continued to play an important role in implementing the pact in the EU 
and along migratory routes towards the EU. 

The  EU,  including  through  its  Justice  and  Home  Affairs  agencies,  provided  tailored  support  to  key 
partner countries, including in the Western Balkans and Türkiye, the EU Neighbourhood, Sub-Saharan 
Africa,  and  Asia,  guided  by  dedicated  EU  Action  Plans  covering  the  key  migratory  routes  towards 
Europe in a whole-of-route approach as well as by the relevant operational actions of the policy cycle 
(EMPACT(11)). 

In  2024,  the  EU  launched  the  Strategic  and  Comprehensive  partnership  with  Egypt,  and  the 
Commission and Mauritania launched the EU-Mauritania Migration Partnership. The implementation 
of the EU-Tunisia Strategic and Comprehensive Partnership (signed in 2023) also continued, including 
in the area of migration. A EUR 1 billion financial support package for Lebanon was announced, of 
which half has been adopted. 

https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/promoting-our-european-way-life/migration-

9 HLEG final report, 2024.  
10 
and-asylum/pact-migration-and-asylum_en 
11 European Multidisciplinary Platform Against Criminal Threats. https://home-affairs.ec.europa.eu/policies/internal-
security/law-enforcement-cooperation/empact-fighting-crime-together_en 

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Democratic governance and human rights, peace and security 

Peaceful, democratic, and resilient societies are a prerequisite for other development objectives and 
human security. 2024 was a year of turmoil in which new conflicts erupted, existing crises intensified, 
climate-related disasters multiplied, and human rights were violated with impunity.  

In 2024, the EU maintained a strong commitment to promoting peace and security, notably through 
its 12 Common Security and Defence Policy (CSDP) missions and operations. The EU launched a new 
EU maritime operation ASPIDES in early 2024 providing a swift response to the threat against maritime 
security  in  the  Red  Sea.  The  EU  was  engaged  in  78  Peace,  Security  and  Defence  Dialogues  and 
Consultations with 39 partners and also concluded 6 Security and Defence Partnerships with Republic 
of Moldova, Norway, Japan, South Korea, Albania, and North Macedonia. The EU also established new 
and deepened existing peace partnerships with bilateral and regional partners.  

In addition, the NDICI-Global Europe thematic programme on peace, stability and conflict prevention 
continued to address both conflict prevention and peacebuilding as well as global and trans-regional 
threats priorities in third countries. 

The EU was a key provider of electoral assistance globally. The EU has been invited to assess, observe 
elections or follow up on earlier observation missions in 20 countries. In Sub-Saharan Africa alone, the 
EU assisted 15 countries in their electoral processes while enhancing the role of the African Union and 
regional networks of domestic observers.  

Beyond elections, through initiatives under the Instrument for Pre-Accession Assistance III and the 
NDICI-Global Europe and with Team Europe cooperation, the EU remained a key player in supporting 
democracy  globally,  promoting  women  and  youth  civic  and  political  engagement,  strengthening 
democratic institutions, and supporting independent media and journalists. 

Gender equality remained a priority. The EU actively promoted, amongst others, the Women, Peace, 
and Security agenda. Key initiatives included the adoption of a EUR 6 million action to support the 
implementation  of  the  National  Action  Plan  (NAP)  for  implementing  the  United  Nations  Security 
Council Resolution 1325 in Chad, as well as a joint Gender-Responsive Conflict Analysis exercise with 
UNDP in Liberia and the launch of a Gender Country Profile for Afghanistan in partnership with UN 
Women to inform future programmes and actions. 

Civil society organisations and local authorities play a key role in Global Gateway and Team Europe 
initiatives. The Global Gateway Civil society organisations and Local Authorities Dialogue Platform held 
12 consultations in 2024 on various topics like Gender Action Plan III implementation and NDICI-Global 
Europe’s mid-term reviews across different regions. 

In 2024, thematic Framework Partnerships for human rights and democracy were concluded to create 
strategic, longer-term implementing relationships with high-capacity consortia of NGOs. These aim to 
promote  work  fighting  torture,  advocating  against  the  death  penalty,  empowering  young  people`s 
enjoyment  of  freedoms  of  assembly  and  association,  and  promoting  independent  and  pluralistic 
media and quality journalism. 

In  2024,  the  EU  also  provided  protection  support  to  10  050  human  rights  defenders  and  family 
members through its emergency fund and the flagship programme ProtectDefenders.EU, managed by 
a consortium of 12 international NGOs. 

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GLOBAL REACH 

Sub-Saharan Africa  

The EU is Africa’s leading partner in many areas, from trade, investment and security to the green 
transition  and  digital  transformation.  The  EU  launched  transformational  Global  Gateway  flagship 
projects  across  several  priority  areas  in 2024,  ranging  from education  and  digitalisation  to vaccine 
production  and  restoring  ecosystems.  The  Joint  EU-African  Union  report(12)  published  in  October 
documents many examples of Global Gateway flagship projects. In total, 116 flagship projects were 
launched on the continent in 2023 and 2024. 

The Samoa Agreement between the EU and the members of the Organisation of African, Caribbean 
and Pacific States was provisionally applied from 1 January 2024.  

Relations  with  West  Africa  faced  increased  challenges  with  crises  in  the  Central  Sahel  and  the 
weakening of regional frameworks. The EU adapted to the evolving environment. A new EU Special 
Representative for the Sahel was appointed in November 2024.  

The  EU  continued  to  implement  its  renewed  Great  Lakes  Strategy  and  increased  its  diplomatic 
engagement  by  appointing  a  new  EU  Special  Representative  for  the  Great  Lakes  region.  The  EU 
supported conflict resolution initiatives, including the Nairobi and Luanda processes, to solve the crisis 
in the eastern region of the Democratic Republic of the Congo. The EU also supported the transition 
process  in  Gabon,  deploying  an  Election  Expert  Mission  for  the  constitutional  referendum  in 
November. 

The conflict and humanitarian crisis in Sudan has become the world’s largest displacement crisis, with 
11.5 million Internally Displaced Persons (IDPs) – about 30% of the entire population and 15% of all 
IDPs worldwide. The EU provided over EUR 147 million in lifesaving assistance to those affected by the 
crisis,  both  in  Sudan  and  in  neighbouring  countries.  Additionally,  the  EU  mobilised  its  European 
Humanitarian Response Capacity to support the response to the Sudan crisis.  

In East Africa, the EU strengthened its economic, political and security partnership with Kenya, with 
the entry into force of the EU-Kenya Economic Partnership Agreement on 1 July. 

The EU committed EUR 20 million to fight the Mpox outbreak in in the Democratic Republic of the 
Congo in October 2024. 

Asia and the Pacific  

2024 marked the 20th Anniversary of the EU-India Strategic Partnership. The Political Guidelines 2024-
2025 included a commitment to developing a new strategic agenda on India. It will focus on prosperity 
and sustainability, technology and innovation, security and defence, connectivity and global issues, 
and deepening people-to-people contacts. 

The EU-Thailand Partnership and Cooperation Agreement entered into provisional application on 20 
October  2024.  Free  Trade  Agreements  negotiations  are  at  an  advanced  stage  with  Australia, 
accelerated with India, Indonesia and Thailand and resumed with the Philippines and Malaysia, while 
a digital trade agreement with Singapore was finalised. 

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implementation-2030-vision_en  

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Building  on  the  EU-China  dialogue,  the  EU  adopted  in  2024  a  new  action  supporting  international 
climate goals by facilitating the exchange of expertise between the EU and China and sharing best 
practices in emissions trading. 

In  2024,  the  Commission  deployed  EUR  239  million  in  ‘blended’  funds  through  the  Asia  Pacific 
Investment  Facility.  These  funds  will  leverage  over  EUR  3  billion  in  additional  public  and  private 
finance, with projects contributing to sustainable growth across Central Asia, South Asia, South-East 
Asia and the Pacific. 

In January 2024, the EU successfully hosted the ‘Global Gateway Investors Forum for EU-Central Asia 
Transport Connectivity’ in Brussels. The Forum saw EUR 10 billion committed towards investments for 
Central Asia.  

The  Coordination  Platform  for  the  Trans-Caspian  Transport  Corridor  was  launched  in  October  to 
establish fast and efficient routes connecting Europe and Central Asian countries. 

The first ever EU-Gulf Cooperation Council Summit was held on 16 October 2024, with discussions 
reconfirming the commitment to a strategic trade and investment partnership and cooperation on the 
green and digital transitions. 

After 11 years of conflict, Yemen remains one of the world’s worst humanitarian crises. It is also the 
world’s third most vulnerable country to climate change. In 2024, the EU allocated EUR 125 million in 
humanitarian aid to support the most vulnerable and disadvantaged communities. 

The EU naval operation EUNAVFOR ASPIDES launched in February 2024 protects commercial shipping 
in the Red Sea from attack escorting over 350 vessels during the year. 

The EU is a dialogue partner of the Pacific Islands Forum, the region’s main political organisation; in 
2024, it participated in its Leaders Meeting in Tonga. 

Americas and the Caribbean 

Reaching a political agreement on the EU-Mercosur Partnership Agreement on 6 December 2024 was 
a  breakthrough  for  both  regions.  This  new  partnership  strengthens  geopolitical,  economic, 
sustainability  and  security  cooperation  between  the  EU  and  the  Mercosur  countries  of  Argentina, 
Brazil, Paraguay and Uruguay. 

Other key milestones included the EU-LAC Global Gateway Investment Agenda and the launch of the 
EU-CELAC  consultative  coordination  mechanism  in  Honduras  in  May.  In  2024  the  EU-LAC  Digital 
Alliance grew to 51 members, with Grenada, Belize and Guyana joining. 

Efforts to more closely coordinate EU external and cohesion funding took a significant step forward 
with  a  first  ever  call  for  projects  to tackle  challenges,  such  as the  sargassum  threat,  shared  by EU 
outermost regions, OCTs and non-EU countries. 

As part of the EU-LAC Health Resilience Initiative, the EU launched the EUR 8.9 million PharmaNext 
programme  to  strengthen  the  Caribbean  pharmaceutical  sector.  It  focuses  on  modernising  health 
regulatory frameworks, promoting skills transfer, and boosting investment. 

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The Samoa Agreement between the EU and the members of the Organisation of African, Caribbean 
and Pacific States was provisionally applied from 1 January 2024. 

In Haiti, more than 1 million people (9% of the population) were internally displaced by the end of 
2024. The EU launched three initiatives totalling EUR 40 million to support Haiti’s education sector, 
improve customs administration, and foster local development in the North-East. These projects are 
part of a broader strategy addressing the crisis and to strengthen local communities’ resilience. The 
EU provided also EUR 36.5 million in humanitarian aid. 

EU Enlargement (Western Balkans, Türkiye, Ukraine, Republic of Moldova, Georgia) 

The  enlargement  process  gathered  fresh  momentum  in  2024  with  the  first  intergovernmental 
conferences  opening  accession  negotiations  with  Ukraine  and  Republic  of  Moldova  (hereafter 
Moldova) on 25 June. In March 2024, the European Council decided to open accession negotiations 
with Bosnia and Herzegovina. By contrast, the actions of the Georgian authorities since spring 2024 
have effectively halted that country’s accession process. 

The EUR 6 billion Reform and Growth Facility, an integral element of the Growth Plan for the Western 
Balkans, entered into force in May 2024. This complements the Economic and Investment Plan for the 
region to help increase its economic convergence with the EU and accelerate reform. 

In  2024,  the  EU  continued  to  support  Türkiye  in  its  efforts  to  host  some  three  million  refugees, 
allocating  an  additional  EUR  1  billion  to  provide  basic  needs,  healthcare,  educational support,  and 
social  cohesion  assistance.  Support  also  included  a  substantial  allocation  to  strengthen  Türkiye’s 
capacity to manage migration and control its borders.  

European Neighbourhood 

European Neighbourhood East (Armenia, Azerbaijan, and Belarus) 
In 2024, the Eastern Partnership remained a flexible, incentive-based cooperation framework tailored 
to the needs of partner countries. The Partnership has continued to deliver tangible results, positively 
impacting people’s lives and supporting critical reforms. 

In Belarus notably, assistance to democratic civic engagement and leadership was stepped up amid a 
further deteriorating human rights situation and the regime’s support to Russia’s war of aggression in 
Ukraine. 

During 2024, the EU continued to support finding peaceful solutions to conflicts in the South Caucasus, 
including  the  conflict  between  Armenia  and  Azerbaijan.  In  2024,  the  EU  Mission  in  Armenia 
contributed to stability and human security along the border with Azerbaijan.  

European Neighbourhood South 
In Gaza, the EU worked to secure access for humanitarian assistance and support to mediators in the 
ceasefire negotiations. The EU increased its humanitarian assistance in 2024 to EUR 237 million. To 
complement  the  funding  effort,  the  EU  continued  the  operational  support,  launching  32  EU 
Humanitarian Air Bridge flights, which transported more than 2 700 metric tonnes of aid. The EU also 
provided  a  EUR  382.5  million  emergency  aid  package  to  support  the  Palestinian  Authority,  linking 
payments to implementation of far-reaching reforms. 

In 2024, the EU continued to provide strong support to Syrians and neighbouring countries hosting 
Syrian refugees. The EU maintained its efforts to find a lasting solution to the conflict including by 

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supporting the work of the UN Special Envoy for Syria and maintaining restrictive measures on the 
Assad regime. The EU and its Member States remained the largest donors to Syria, having mobilised 
more than EUR 37 billion since 2011. Support also included access to basic services to refugees from 
Syria in neighbouring countries, internally displaced people in Syria and their hosting communities in 
the region. The sudden fall of the Assad regime at the end of 2024 will hopefully herald a brighter 
future for the Syrian people. 

The  9th  Union  for  the  Mediterranean  Regional  Forum was  held  in Barcelona on  28  October  2024, 
focusing on the situation in the Middle East as well as on ongoing organisational reform efforts. 

Overseas countries and territories (OCTs) 

The  13  Overseas  Countries  and  Territories  are  non-sovereign  entities  that  maintain  special 
constitutional links to Denmark, France, and the Netherlands. Together with EU outermost regions, 
these territories play a strategic role for the EU as regional ambassadors of European values. They 
hold  strategic  assets,  including  vast  exclusive  economic  zones,  the  potential  to  host  strategic 
infrastructure (such as Galileo), and access to critical raw materials resources. 

In 2024, the regular institutional EU-OCTs dialogue included three tripartite meetings and the OCTs-
EU Forum. Relations with Greenland were particularly active, with the opening of an EU Office in Nuuk 
as part of the EU’s Arctic strategy. The EU and Greenland broadened their cooperation from education 
to the area of green growth, including the development of the critical raw materials sector. A first-
ever EU business mission took place in October.  

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