EN EN

EUROPEAN COMMISSION

Brussels, 29.10.2026 COM(2026) 588 final

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND

THE COUNCIL

2026 Annual Report on the implementation of the European Union's External Action

Instruments in 2025

{SWD(2026) 324 final}

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Table of Contents FOREWORD ............................................................................................................................................. 2

GLOBAL COMMITMENTS ........................................................................................................................ 4

The EU response to Russia’s war of aggression against Ukraine ........................................................ 4

The EU: a global actor ......................................................................................................................... 4

Global Gateway ................................................................................................................................... 6

Humanitarian assistance ..................................................................................................................... 6

THEMATIC OVERVIEW ............................................................................................................................. 8

Human development .......................................................................................................................... 8

Clean transition and climate resilience ............................................................................................... 8

Digitalisation, science, technology, innovation and infrastructure .................................................... 9

Sustainable growth and jobs ............................................................................................................. 10

Migration and forced displacement ................................................................................................. 10

Democratic Governance and Human Rights, Peace and Security .................................................... 11

GLOBAL REACH...................................................................................................................................... 13

Sub-Saharan Africa ............................................................................................................................ 13

Asia and the Pacific ........................................................................................................................... 13

The Americas and the Caribbean ...................................................................................................... 14

EU Enlargement (Western Balkans, Türkiye, Ukraine, Republic of Moldova, Georgia) .................... 15

European Neighbourhood ................................................................................................................ 16

European Neighbourhood East ..................................................................................................... 16

European Neighbourhood South and the Middle East/Gulf region ............................................. 16

Overseas countries and territories (OCTs) ........................................................................................ 17

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FOREWORD

2025 was a year characterised by profound and often unpredictable changes around the world.

Citizens increasingly felt the fallout from ongoing wars in the neighbourhood. Russia’s war of

aggression in Ukraine continued to spill over into the European Union with the increase of hybrid

campaigns activities aimed at undermining European security. The increasingly volatile context

continued to require the European Union to take greater responsibility for its security and defence,

proactively defend its interests around the world, and step up work to address global challenges,

protect human rights and strengthen multilateralism.

The EU has steadily shifted its approach towards creating mutually beneficial partnerships of equals,

with a double imperative of building resilience and autonomy internationally and at home. A key tool

for this work is the Global Gateway strategy. Through Global Gateway, the EU is able to concentrate

its resources where they can make the biggest sustainable development difference, while protecting

the Union’s interests. The impact has been tangible both in terms of the quantity and quality of

initiatives undertaken.

To maximise the EU’s impact in the world and make the best use of use EU resources and skills, EU

institutions, EU Member States and financial institutions have fully embraced the concept of working

together as “Team Europe”. This approach is now an integral and central part of the external action

toolbox, be it under Global Gateway, in fragile contexts, via humanitarian assistance and civil

protection or in multilateral engagement. The EU’s network of Delegations continues to play a key

role in ensuring a strong and coherent presence on the ground, working closely with EU Member

States and European financial institutions in a “Team Europe” approach.

EU external action throughout 2025 can be divided into four mutually reinforcing pillars: defending

peace and security, promoting enlargement, safeguarding prosperity and economic security and

resilience, and reinforcing multilateralism and global solidarity. The EU’s external action instruments

continued to combine a fast, flexible and integrated way to respond to crises and geopolitical shocks,

with the highest standards for sound financial management.

This report outlines the EU’s and its Members States’ work across all four pillars, including work to

strengthen partnerships, in line with our European values, as well as our actions in many areas from

poverty eradication and sustainable development, to free trade, security, peace and stability,

migration, promoting human rights, gender equality and women’s empowerment, protecting

democracy and the rule of law, and alleviating suffering. EU initiatives also supported partner

countries in tackling climate change and protecting biodiversity, illustrating the EU’s continued efforts

to honour its global commitments.

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The European Union is at its strongest when we pull together. Along with our comprehensive portfolio

of projects and external instruments, continuing to develop and deliver solid and sustainable results

with a “Team Europe” approach is therefore essential.

High Representative Commissioner Commissioner Commissioner Commissioner /Vice-President KAJA KALLAS DUBRAVKA ŠUICA MARTA KOS JOZEF SÍKELA HADJA LAHBIB Foreign Affairs & Mediterranean Enlargement International Equality, Security Policy Partnerships Preparedness and

Crisis Management

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GLOBAL COMMITMENTS

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

Russia’s full-scale war of aggression against Ukraine continued to cause human suffering, widespread

displacement and large-scale destruction of critical civilian and energy infrastructure, while

undermining the European and global security order and aggravating food, energy and economic

vulnerabilities well beyond the region.

By the end of 2025, the European Union (EU) and its Member States have provided combined support

to Ukraine totalling approximately EUR 193.3 billion, including EUR 69.3 billion in military support,

over EUR 103.3 billion in financial, economic and humanitarian support, EUR 3.7 billion from proceeds

linked to immobilised Russian assets, and EUR 17 billion to assist people fleeing the war.

A central pillar of the EU’s response in 2025 was the Ukraine Facility, a dedicated instrument of up to

EUR 50 billion to provide predictable and flexible support for Ukraine’s recovery, reconstruction and

modernisation combining reform-linked grants and loans with an investment arm, the Ukraine

Investment Framework, with EUR 9.5 billion of EU support and aiming to mobilise up to EUR 40 billion

in public and private investment. By late 2025, up to EUR 6.9 billion had been allocated under this

framework to programmes supporting small businesses, war-affected communities, critical

infrastructure and green and digital transitions.

In 2025, following up on the commitments by G7 leaders and based on a proposal by the Commission,

the EU adopted and disbursed a financial assistance package consisting of an exceptional macro-

financial assistance loan of EUR 18.1 billion. As part of the package, a loan cooperation mechanism is

financed by extraordinary revenues stemming from immobilised Russian sovereign assets. In addition,

in December 2025, the EU Member States agreed to provide a loan to Ukraine of EUR 90 billion for

2026 and 2027, based on EU borrowing backed by the EU budget headroom.

Throughout 2025, the EU adopted further packages of restrictive measures (sanctions) to curtail

Russia’s ability to wage its war and to weaken its economic base, for example by restricting Russia’s

access to battlefield technologies and limiting Russia’s energy revenues.

At the same time, sanctions and measures to reduce dependence on Russian fossil fuels formed

another key strand of the EU’s response, with the EU’s REPowerEU roadmap and related legislation

sharply reducing Russian imports to the EU.

Ukraine remained the largest operation ever under the EU Civil Protection Mechanism with the

Emergency Response Coordination Centre handling 39 updated requests for assistance from Ukraine.

In 2025 alone, the EU provided a total of EUR 220 million in humanitarian aid to alleviate the suffering

of the Ukrainian people. The Temporary Protection Directive for people fleeing the war was extended

until March 2027.

The EU: a global actor

In 2025, the EU operated in an increasingly tense and complex international environment marked by

war near its borders, escalating regional conflicts, disruptions on trade routes, intensifying geopolitical

and geoeconomic competition, and deepening climate and environmental crises. Democratic

backsliding, international law violations, including human rights and international humanitarian law

violations, disinformation and foreign information manipulation and interference, and growing

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pressure on the multilateral system and the rules-based international order further undermined global

stability.

The EU’s response to world developments in 2025 rested on four mutually reinforcing pillars:

defending peace and security, promoting enlargement, safeguarding prosperity and resilience

through sustainable and secure economic ties, and reinforcing multilateralism and global solidarity.

Lasting peace, security and prosperity depends on an effective rules-based international order.

In 2025, the EU further advanced the implementation of its security and defence agenda, through an

integrated approach to multi-faceted security and defence challenges, by maintaining strong military

support for Ukraine, reinforcing its role through Common Security and Defence Policy missions and

the European Peace Facility, boosting resilience to hybrid and cyber threats, and strengthening

security and defence partnerships.

The Union acknowledged that interdependence is increasingly weaponised and in 2025 sought to

reduce critical dependencies while preserving open and rules-based trade. The EU outlined a more

proactive and efficient approach to strengthen its economic security(1). Reflecting the growing

centrality of economic security and resilience in external action, the EU has advanced an economic

foreign policy that links competitiveness, security and partnerships; reinforcing its trade and

partnership agenda with key regions and like-minded partners worldwide. The Global Gateway

strategy became an essential framework to translate this agenda.

The EU reinforced its commitment to multilateralism, global solidarity and the protection of human

rights and humanitarian principles working to defend and adapt the multilateral system, building on

the UN Charter, the 2030 Agenda and the United Nations (UN) “Pact for the Future”. In 2025, the EU

actively supported the UN Secretary-General’s UN80 Initiative, an opportunity to strengthen the

effectiveness, cost-efficiency and coherence of the UN and ensure its ability to deliver across its three

pillars of peace and security, human rights, and development.

In 2025, the EU further elevated the ocean as a strategic priority of its external action, including by

defending the integrity of the UN Convention on the Law of the Sea as the legal framework for all

ocean activities. At the third UN Ocean Conference, the EU tabled more than 50 voluntary

commitments worth nearly EUR 1 billion, to help mobilise the international community to accelerate

ocean action, notably towards the entry into force of the High Seas Treaty.

During 2025, the EU and its Member States collectively remained the largest provider of official

development assistance (ODA) with EUR 82.5 billion, representing 48% of global ODA(2) based on

preliminary OECD data. However, data shows a significant global decrease in total ODA, mainly driven

by severe US disengagement.

Efforts to more closely coordinate EU external and cohesion funding took a significant step forward

with the launch of the first calls for projects to tackle challenges shared by EU outermost regions, OCTs

and non-EU countries participating in INTERREG programmes.

1 JOIN(2025) 977 2 Global ODA is defined here as including the ODA reported by the EU collective and all other donor countries.

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Global Gateway

The EU further scaled up Global Gateway, its worldwide investment strategy for building mutually

beneficial partnerships and mobilising public and private resources to bridge the global investment

gap and support the implementation of the 2030 Agenda and the Sustainable Development Goals

(SDGs).

By 2025, the EU, its Member States and European financial institutions had mobilised over EUR 306

billion in Global Gateway investments, well ahead of the 2027 target of EUR 300 billion. Throughout

2025, the “Team Europe” approach remained central to implementation, to ensure coordinated

delivery of high-impact investment packages.

The Global Gateway Investment Hub(3) for Sub-Saharan Africa, Latin America and the Caribbean, and

the Asia-Pacific region was launched in October 2025 as the central platform to streamline and amplify

private sector involvement, allowing EU companies to submit investment proposals via Team

Nationals(4) in EU Member States. The Global Gateway Business Advisory Group continued to

strengthen cooperation with the European private sector.

In Northern Africa and the Middle East, the Pact for the Mediterranean, adopted in October 2025,

provides the new political framework for Global Gateway in the region. In 2025, EUR 662 million in

investments were approved, expected to mobilise over EUR 7 billion in investments, bringing total

expected mobilisation to EUR 30 billion in the Southern Mediterranean between 2021 and 2025. In

the Western Balkans, Türkiye, and Eastern Neighbourhood region nearly EUR 40 billion in expected

investments were mobilised between 2021 and 2025.

Humanitarian assistance

In 2025, EU humanitarian aid and civil protection responded to an exceptionally high level of global

needs. The EU is a principled donor guided by the humanitarian principles of humanity, neutrality,

impartiality, and independence. Together, the EU and its Member States provides the largest share of

global humanitarian funding (34% in 2025), with the EU allocating more than EUR 2.57 billion in 2025

for needs-based humanitarian assistance in 110 countries, alongside over EUR 245 million for the

Union Civil Protection Mechanism (UCPM) and related capacities.

The global hunger crisis remains critical. To respond to worldwide hunger, around EUR 600 million was

allocated to humanitarian food and nutrition assistance, in a context where 295 million people faced

acute food insecurity and where famine has been confirmed in Gaza and Sudan.

The main drivers of today’s humanitarian crisis are conflict, insecurity and the impact of climate

change. In today’s armed conflicts, violations of international humanitarian law (IHL) remain

widespread. Thus, in 2025 the European Commission continued to fund and advocate for a better

enabling environment for principled humanitarian aid in the context of increasing violations of IHL and

growing impediments to principled humanitarian access.

The European Humanitarian Response Capacity, rebranded as ReliefEU, provided strategic logistical

support through humanitarian air bridge operations, stockpiling, warehousing and transport services.

In 2025, ReliefEU has provided humanitarian aid in crises and conflict-affected areas including Gaza,

Sudan, the Democratic Republic of the Congo and Myanmar, in close cooperation with humanitarian

3 https://international-partnerships.ec.europa.eu/investment-hub_en 4 Domestic whole-of-government coordination mechanisms for the engagement with the private sector.

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partners and the UCPM.  In 2025, over EUR 110 million was allocated to ReliefEU operations, delivering

a total of 6 780 metric tonnes of aid and responding to 20 crises in 18 countries.

The external aspects of civil protection are an integral part of the EU’s response to emergencies,

complementing humanitarian aid and development cooperation by providing rapid, coordinated

assistance in the event of natural and human-induced disasters across the globe. The UCPM was

activated, for example, in response to the Ebola outbreak in Democratic Republic of the Congo, severe

floods in Cabo Verde and the 7.7-magnitude earthquake in Myanmar in March 2025.

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THEMATIC OVERVIEW

Human development

Poverty eradication continued to be central to the Commission’s work. Currently, around 10.3% of the

world’s population lives below the extreme poverty line of USD 3 per day. Between 2021 and 2024,

8.1% of EU-financed ODA (over EUR 26.6 billion) directly supported SDG 1 on eradicating poverty.

Humanitarian health action remained essential to protect lives and preserve development gains. In

2025, the EU allocated around EUR 400 million to humanitarian health, a record level, with a focus on

strengthening health systems and epidemic preparedness, advancing basic and universal health

coverage, including women’s health, while responding to a tightening global health financing

environment and rising needs in fragile and conflict-affected countries.

The EU consolidated its role as a leading global supporter of promoting quality education as a human

right and a driver of sustainable development, supporting actions in some 70 partner countries.

Erasmus+ contributed to capacity building and skills development, through cooperation projects with

higher-education institutions, vocational education and youth organisations (EUR 177.1 million in

2025) and through higher education staff and student mobility scholarships (EUR 260.9 million).

In 2025, the EU further consolidated gender equality as a cross-cutting priority in its external action,

in line with the EU Gender Action Plan III(5), including as an example through the mainstreaming of the

“for women, by women” approach across all EU-funded basic needs and livelihoods programmes in

Afghanistan, ensuring that aid reaches women effectively and that they play a meaningful role in the

delivery process.

Almost half of the global population lack access to safely managed sanitation services. During 2025,

the EU continued to support sustainable water, sanitation and hygiene activities, in line with the

European Water Resilience Strategy(6) adopted in 2025, including long-term Global Gateway

investments in around 50 countries, with the private sector mobilised, and via humanitarian assistance

in crises.

Clean transition and climate resilience

In line with the Paris Agreement, the European Green Deal(7) and the Global Gateway strategy(8), the

EU continued to support partner countries to increase sustainable energy access, decarbonise and

adapt to climate change. External action focused on scaling up renewable energy generation,

improving energy efficiency and enhancing regional energy connectivity, while avoiding the creation

or reinforcement of dependencies, as well as supporting climate resilience and disaster risk reduction.

The implementation of the Africa–Europe Green Energy Initiative continued to deliver. The EU, along

with South Africa, also led a year-long campaign(9) to mobilise investment for renewable energy in

Africa resulting in EUR 15.5 billion, including EUR 15.1 billion from Team Europe.

5 JOIN(2020) 17 ; https://international-partnerships.ec.europa.eu/system/files/2021-01/join-2020-17-final_en.pdf 6 COM(2025) 280 ; https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52025DC0280 7 The European Green Deal - European Commission 8 JOIN/2021/30 ; https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52021JC0030 9 https://commission.europa.eu/topics/international-partnerships/global-gateway/energy-africa_en

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The EU continued to promote circular and resource efficient urban economies. In 2025, circular

economy actions were supported through global initiatives in over 40 countries and via regional and

national initiatives in more than 80 additional countries in Africa, Asia and LAC, contributing to more

sustainable production and consumption patterns. The focus shifted from policy dialogue to reforms,

partnerships and investments that help partner countries reduce resource pressures, create quality

jobs and strengthen value chains, while enabling resilient economic relations with the EU.

The EU stepped up action on sustainable and deforestation-free value chains. Through DESIRA+ and

related agrifood programmes, it supported value chains in cocoa, coffee, cashew and “forgotten

crops”, linking smallholders to markets, improving soils and promoting agroforestry.

In critical raw materials (CRM), the EU supported sustainable, secure and resilient supply chains,

including projects contributing to the CRM Act’s benchmarks(10) on sourcing, processing, recycling and

diversification, and operationalised a dedicated CRM facility to connect projects with off-takers and

financiers.

The EU and its Member States play a leading role in international climate finance as the world’s largest

provider of climate finance to developing countries. For example, EFSD+ guarantees and blending

supported climate investment, including through Climate Investor Funds, with at least 50 mitigation

and adaptation infrastructure projects under way. The EU Sustainable Finance Advisory Hub

supported the development of green bond frameworks to help mobilise private capital for climate-

aligned investments.

Digitalisation, science, technology, innovation and infrastructure

In the second half of 2025, the EU started the implementation of the Joint Communication on an

International Digital Strategy for the EU(11), adopted in June 2025, that sets out a comprehensive vision

for mutually beneficial digital transformation, underpinned by an integrated EU Tech Business Offer

that combines secure connectivity, trustworthy artificial intelligence (AI), cybersecurity, space-based

services, trusted digital infrastructure and digital public infrastructure.

Across regions, digital projects under the Global Gateway digital pillar supported and mobilised

international research and innovation ecosystems and stakeholders, while dedicated hubs and

platforms supported knowledge sharing and technical expertise, such as the EU–LAC high-

performance computing network.

Sustainable transport remained a core focus of the EU’s external action, supporting greener and more

resilient connectivity. Along the 12 African priority corridors, the Trans-Caspian Transport Corridor,

the India–Middle East–Europe Corridor, and in Asia, Latin America and the Caribbean, as well as in the

Eastern (e.g. Solidarity Lanes connecting Ukraine and Moldova to the EU) and Southern

Neighbourhood regions, various investments span the rail, road, maritime transport, urban mobility,

logistics infrastructure and aviation sectors.

Global Gateway also helps decarbonise global transport through targeted green investments and

initiatives such as the Sustainable Aviation Fuels flagship (with activities across Africa and India), the

Global Maritime Technology Cooperation Centres and the Green Shipping Corridors and Hubs

10 OJ L, 2024/1252, 3.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1252/oj 11 JOIN(2025) 140 of 5 June 2025 ; https://digital-strategy.ec.europa.eu/en/library/joint-communication-international- digital-strategy-eu

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initiative, which support partner countries in implementing the International Maritime Organisation

and the International Civil Aviation Organization climate objectives.

An Early-Stage Investment Mechanism was launched to provide grants to EU companies in the early

stages of sustainable transport, urban development, energy and AI projects, helping de-risk innovation

and crowd in further finance.

At multilateral level, the EU advanced the implementation of the UN Global Digital Compact and

engaged openly and constructively in the Global Dialogue on AI Governance. The World Summit on

the Information Society 20-year review was a major milestone for global digital governance.

Sustainable growth and jobs

In 2025, the EU fostered sustainable and inclusive economic growth, improving the business

environment and mobilising private investment for quality jobs through the Global Gateway strategy

and the European Financial Architecture for Development. External actions combined policy dialogue,

budget support and risk sharing instruments with targeted measures for skills, value chains and

responsible business conduct.

Engagement with the European private sector was scaled up. In addition to the Global Gateway

Investment Hub and Global Gateway Business Advisory Group, EU Business Fora facilitated networking

and deal-making between European companies and partner country governments.

In 2025, 20 new EFSD+(12) guarantees were signed with various Development Finance Institutions, for

a total guarantee amount exceeding EUR 3 billion, and deployment started with 63 operations signed

in 2025. Blending operations approved in 2025 are expected to generate around EUR 18 billion of

investments.

Education and skills programmes (including opportunity-driven vocational education and training

(VET) and higher education) were increasingly aligning with sectors prioritised under Global Gateway,

such as six new opportunity-driven VET projects launched in multiple African countries to match

training with labour-market needs.

Systematic use of the Gender, Disability and Inequality markers helped ensure that investments take

account of distributional impacts, promote women’s economic empowerment, inclusion and connect

underserved communities.

Migration and forced displacement

Across regions, the EU reinforced its human-rights based approach to migration, adopting internal

guidelines and tailored procedures to improve the design, identification, formulation and monitoring

of migration actions and the handling of alleged violations. The EU increasingly used its funds to

promote its migration objectives with partner countries. The EU engaged in dialogues on strategic

partnerships with key partners covering all aspects of migration and forced displacement, supported

by EU funding, in line with the European Asylum and Migration Management Strategy(13).

Thanks to the strengthening of our migration partnerships, irregular crossings at the EU’s external

borders fell to around 179 000 in 2025, a quarter less than in 2024, and the number of asylum

12 The European Fund for Sustainable Development Plus. 13 European Asylum and Migration Management Strategy, COM(2026) 45 final.

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applications in the Union also decreased in 2025 by around 19% compared to 2024, partly reflecting

enhanced cooperation with partner countries. For example, building on the migration partnership

with Mauritania adopted in 2024, all actions in the EUR 210 million support package were

implemented, significantly reinforcing Mauritania’s capacity to manage migration and forced

displacement and to create economic opportunities in affected regions. These funds were mobilised

also as part of the NDICI’s flexible initiative approach, which is proving again to be key for encouraging

cooperation on migration.

The EU also intensified work against migrant smuggling and trafficking in human beings. A global

action on the financial and digital dimensions of migrant smuggling contributed to the Global Alliance

to Counter Migrant Smuggling and formed part of a EUR 78 million funding package announced in

December 2025.

About 5.8 million migrants, refugees, internally displaced people (IDPs) and host‑community members

were protected or assisted with EU support under the current multiannual financial framework 2021-

2027.

In 2025, around 15% of the humanitarian aid budget was dedicated to protection with a strong focus

on refugees and IDPs in crises such as Ukraine, Gaza, Sudan, Syria, Afghanistan and the Horn of Africa.

In 2025, about 87% of humanitarian aid funding was allocated to projects addressing needs of forcibly

displaced people. The EU remained committed to support resettlement and humanitarian admission

and continued to support the Emergency Transfer Mechanism in Rwanda and the Refugee Support

Facility in Türkiye.

Democratic Governance and Human Rights, Peace and Security

In addition to many bilateral and regional interventions, the NDICI–Global Europe thematic

programme on peace, stability and conflict prevention continued to address conflict prevention and

peacebuilding and to tackle global and trans regional threats(14). By end of 2025, 78 actions on conflict

prevention, peacebuilding and crisis preparedness were ongoing. An additional 18 new actions

addressed global peace and security concerns, and 14 new actions on global threats were adopted.

Counter terrorism and prevention of violent extremism were strengthened through instruments such

as the EU–UN Global Terrorist Threat Facility(15), which delivered targeted support packages to Iraq,

Uzbekistan, Nigeria and Somalia, amongst others, and through work on multilateral judicial

cooperation with the League of Arab States.

Election support and observation play a key role in promoting peaceful, inclusive and credible electoral

processes. In 2025, full election observation missions were deployed to Bolivia, Ecuador, Guyana,

Honduras, Kosovo, Malawi and The Philippines; election expert missions to Kosovo, Iraq and Surinam;

and follow-up missions to Colombia, Guatemala, Kenya, Lesotho, Maldives, Nigeria and Timor-Leste,

helping to strengthen democratic institutions, build public confidence in electoral processes and deter

fraud, intimidation and violence.

In fragile and conflict-affected settings, the EU maintained a flexible and agile engagement, working

closely with local partners, civil-society organisations, youth and women’s organisations to build

14 https://science4peace.jrc.ec.europa.eu/#/Home/CET/Map 15 https://www.un.org/counterterrorism/en/EU-UN-Global-Terrorism-Threats-Facility  This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and the ICJ Opinion on the Kosovo declaration of independence.

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resilience and promote peace, preferably in a “Team Europe” approach. Global initiatives to protect

civic space, such as the “EU System for an Enabling Environment”, monitored trends and built

civil-society capacities in 80 countries.

The EU reinforced its overall security and defence approach including through initiatives such as

Readiness 2030 and the SAFE instrument. The European Peace Facility remained central to the EU’s

security response, while maintaining that expenditures with military or defence implications are

financed outside the EU budget. Common Security and Defence Policy missions and operations, in

addition to rapid crisis response tools, were organised across regions to address the immediate and

longer-term consequences of conflicts, including in the Middle East, Africa and the neighbourhood. In

2025, EU’s cooperation with partners was strengthened by concluding Security and Defence

Partnerships with the United Kingdom and Canada.

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GLOBAL REACH

Sub-Saharan Africa

In 2025, the EU and Africa further consolidated their strategic partnership covering trade, investment,

peace and security, green transition and digital transformation. The Joint Vision for 2030(16) continued

to guide cooperation, with the Global Gateway Africa–Europe Investment Package at its core,

alongside work on peace, security and governance, migration and mobility, and effective

multilateralism. The third EU–African Union (AU) ministerial meeting and the seventh AU–EU Summit,

held in 2025 together with the AU–EU Business Forum and Civil Society Organisations–Youth Forum,

marked the 25th anniversary of the partnership. The EU and the Organisation of African, Caribbean

and Pacific States stepped up their political cooperation and continued working towards the

implementation of the Samoa Agreement.

In 2025, the EU remained Africa’s leading trade, investment, peace and security partner, provider of

ODA, and a leading humanitarian donor. EU trade with the continent reached EUR 360 billion,

representing 33% of Africa’s total trade. EU foreign direct investment stock totalled EUR 250 billion.

By the end of 2025 EU’s support to African countries through the European Peace Facility totalled EUR

400 million.

Support for the operationalisation of the African Continental Free Trade Area increased through

assistance on trade facilitation, customs and standards. The Africa–Europe Green Energy Initiative and

the “Scaling up renewables in Africa” campaign expanded work on renewable energy and regional

electricity integration, including grid upgrades and solar and wind investments. The NaturAfrica

programme continued across six priority habitat regions, while Team Europe Initiatives on

transboundary water management and circular economy helped partner countries adapt to climate

change, improve water security and WASH systems.

In 2025, both the Lobito and Douala–N’Djamena corridors, two Global Gateway flagships,

demonstrated that infrastructure can support broader economic development and resilience,

especially in landlocked and vulnerable areas. On-going implementation is successful thanks to strong

African ownership and coordinated actions among the EU, African partners, financial institutions and

private investors.

Humanitarian assistance complemented these efforts: in 2025, the EU responded to the world’s

largest displacement crisis in Sudan (over 10 million IDPs), allocating over EUR 273 million in response

to the crisis (including over EUR 161 million in Sudan alone), and EUR 157 million in the Horn of Africa

to address drought, food insecurity and displacement. The EU has also stayed engaged in Central

Sahel, addressing forced displacement, and in the Great Lakes region, providing healthcare in the face

of epidemics and armed violence.

Asia and the Pacific

In 2025, the EU’s engagement with East Asia, South-East Asia and South Asia continued to deepen,

consolidating the comprehensive regional approach set out in the EU’s Strategy for the Indo-Pacific(17),

including by advancing energy connectivity and Just Energy Transition Partnerships.

16 https://www.consilium.europa.eu/media/54412/final_declaration-en.pdf 17 https://www.eeas.europa.eu/eeas/eu-indo-pacific-strategy_en

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The Global Gateway flagship “Energy Connectivity in South Asia” demonstrates how the EU links

sustainable growth, green transition and regional integration by supporting the development of a

cross-border electricity market.

A key Global Gateway milestone was the signing of the EU–Africa–India Digital Corridor Blue Raman(18),

which will reinforce resilient submarine cable connectivity and a secure, diversified global data

architecture. The EU also adopted a EUR 42 million initiative to strengthen the use of Copernicus data

in Asia Pacific, supporting evidence-based decision making on climate and spatial planning.

At the first EU–Central Asia Summit in April 2025, the EU announced a EUR 12 billion Team Europe

Global Gateway investment package, accompanied by a Declaration of Intent on CRM, targeting

sustainable transport, green energy, digital connectivity and water, resulting in eight new contracts to

improve multimodal links between Central Asia and Europe.

At the first EU-Pacific Business Forum in Fiji, the EU announced nearly EUR 300 million in Global

Gateway investments for climate resilience, sustainable growth, transport, digital connectivity, water,

renewable energy, and trade development across the Pacific, positioning the Green-Blue Alliance(19)

as a flagship for the region.

The EU provided more EUR 163 million in lifesaving assistance in Afghanistan in 2025, as well as

delivering 390 tonnes of medical and nutritional items to alleviate the needs of the Afghani people.

The Americas and the Caribbean

The fourth Community of Latin American and Caribbean States (CELAC)–EU Summit took place in

November 2025 in Colombia, alongside Civil Society and Business Forums. Leaders reaffirmed the

strategic importance of the EU–CELAC partnership and set priorities, including under the EU–LAC

Global Gateway Investment Agenda (GGIA). Despite a challenging geopolitical context, the EU and

CELAC adopted a Joint Declaration and two complementary declarations on citizen security and care,

underscoring their shared commitment to multilateralism, trade and investment, the green and digital

transitions, social inclusion, and cooperation on security, justice, and the fight against transnational

organised crime.

By 2025, GGIA implementation included more than 80 projects confirming the EU’s position as a

leading investor in LAC and showcasing the strength of the “Team Europe” approach. Flagship

initiatives include regional electricity integration, the Condosat satellite-connectivity initiative, and the

EU–LAC supercomputing network for AI. Since May 2025, the EU holds permanent observer status in

the Latin American and Caribbean Energy Organisation(20) to advance jointly on clean energy transition

and sustainable policies.

Cooperation between the EU and Caribbean partners also deepened within the framework of the

Samoa Agreement and its Caribbean Protocol, anchoring political dialogue and development

cooperation in a renewed, long-term partnership.

In the Caribbean, the Global Gateway Sargassum Initiative developed national roadmaps for

sargassum valorisation, turning an environmental challenge into a significant economic opportunity.

18 https://international-partnerships.ec.europa.eu/policies/global-gateway/eu-africa-india-digital-corridor_en 19 https://international-partnerships.ec.europa.eu/policies/global-gateway/green-blue-alliance-pacific_en 20 https://www.olade.org/en/

15

Cooperation with the US focused on engagement with different categories and levels of stakeholders

beyond federal authorities via public diplomacy, city to city and education outreach actions.

Engagement with Canada positioned the EU as a trusted and reliable partner in key priorities sectors

such as trade, digital and defence and security. Cooperation with both countries were also centred

around Arctic matters (Arctic Urban Regional Cooperation and Youth engagement).

In and around Venezuela, where 58.6% of the population faces extreme poverty, the EU acted as the

leading humanitarian donor in 2025, providing over EUR 52 million.

A new humanitarian stockpile was established in Barbados to reinforce the EU’s rapid response

capability for tropical cyclones, floods and earthquakes in the Caribbean and neighbouring regions.

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

The 2025 Enlargement Package, adopted in November, confirmed that momentum for enlargement

remained high on the EU agenda and that the accession of new Member States was increasingly within

reach, provided that partners deliver on fundamental reforms.

The Western Balkans saw steady progress on the fundamentals of the accession process across most

partners, with Montenegro and Albania moving closer to the objective of completing negotiations. For

Ukraine and the Republic of Moldova, the screening process (technical examination of the EU acquis)

closed in 2025, and the Commission assessed that the fundamentals, internal market and external

relations clusters were ready to be opened. Georgia formally remains a candidate country, but recent

actions of the Georgian authorities have de facto halted the accession process. Türkiye remained a

partner of strategic importance and a candidate country despite accession negotiations remaining at

a standstill.

The Commission developed “eAccession”, an innovative AI tool, to help candidate countries accelerate

regulatory approximation while saving time and resources.

The EU continued to support regional economic integration, including through the modernisation of

payment systems and the inclusion by the European Payments Council of Albania, Montenegro and

North Macedonia in the SEPA schemes in October 2025, significantly reducing transaction times and

costs for citizens and businesses.

The Ukraine Facility and the Growth Plans for the Western Balkans and the Republic of Moldova,

illustrate how the EU combines political commitment, financial support and conditionality to

accelerate convergence with the EU. The Facilities consist of EUR 6 billion in grants and loans for the

Western Balkans and EUR 1.9 billion for Moldova, with funding linked to implementation of jointly

agreed Reform Agendas and gradual integration into selected areas of the Single Market. By the end

of 2025, Reform Agendas have been adopted for all partners, and the prefinancing has been disbursed

to Albania, Montenegro, North Macedonia, Serbia and Moldova.

Partners’ full alignment with the Common Security and Defence Policy and Common Foreign and

Security Policy, including EU restrictive measures, was promoted and the EU responded to partners’

requests to strengthen their resilience and security against hybrid and other threats.

The EU maintained substantial support for refugees in Türkiye, committing EUR 1.3 billion in support

to refugees under the budget for 2025-2027, while a new “visa cascade” system was introduced in

2025 to facilitate travel for bona fide Turkish travellers in the Schengen area.

16

European Neighbourhood

European Neighbourhood East

In the Eastern Neighbourhood, marked by Russia’s war of aggression against Ukraine, the EU

continued to engage with partner countries of the region either on bilateral or on regional basis

(Armenia, Azerbaijan, Belarus, Georgia, Moldova and Ukraine). The Eastern Partnership continued to

provide a well-established and efficient framework of cooperation to all participants. With Belarus,

the EU maintained its policy of pressure on the authorities while supporting citizens, civil society and

independent media.

The programme “Support to Advanced Learning and Training (SALT I-III)” assists Belarusian students,

lecturers and researchers forced to flee the regime. It is a strategically important initiative for

preserving Belarus’ intellectual potential.

The Global Gateway strategy and the 2025-2027 multiannual action plans for the Eastern

Neighbourhood remained key for supporting resilience, connectivity and socio-economic

development. The newly approved multiannual action plans (excluding assistance for Ukraine) totalled

EUR 668.2 million in commitments.

A new strategic approach to the Black Sea region(21) was adopted in May, and a Connectivity Agenda

was endorsed in October, which links Europe with Central Asia through the Black Sea region, Türkiye

and the South Caucasus and provides an important basis for closer cooperation with South Caucasus

partners on sustainable transport, energy and digital links.

European Neighbourhood South and the Middle East/Gulf region

A prosperous, connected, resilient, peaceful and stable North Africa, Middle East and Gulf region is in

the strategic interest of the EU.

In 2025, the EU equipped itself with new tools, notably the Pact for the Mediterranean(22) and the

launch of a number of Strategic and Comprehensive Partnerships, to deliver more coherent,

impact-oriented action across the region. A dedicated Commission Directorate-General for the Middle

East, North Africa and the Gulf became fully operational as the hub for the Commission’s relations

with 19 partner countries.

The war in Gaza continued to generate a severe humanitarian crisis, widespread destruction and

increased instability across the Middle East. The EU convened the first Palestine Donor Group meeting

in November 2025, while tabling a comprehensive programme for Palestine’s recovery and resilience

for 2025-2027 and proposing restrictive measures in response to actions undermining the two-state

solution.

The EU remains the biggest international donor and provider of humanitarian aid to Palestinians,

having allocated a total of EUR 220 million in emergency humanitarian support in 2025. In addition to

funding, the EU maintained operational support through air bridge flights, medical evacuations and

road cargo actions.

21 https://ec.europa.eu/commission/presscorner/detail/en/ip_25_1348 22 JOIN(2025) 26 of 16 October 2025 https://north-africa-middle-east-gulf.ec.europa.eu/joint-communication-pact- mediterranean_en

17

In the Gulf, Strategic Partnership Agreements were offered to all six Gulf Cooperation Council

members; by the end of 2025, five had responded positively and negotiations had been launched with

the United Arab Emirates and Qatar.

The Medusa Submarine Cable System is a transformative project for regional and international

telecommunications, which will provide resilient, high-capacity connectivity routes between Europe

and North Africa.

Overseas countries and territories (OCTs)

The 13 OCTs are non-sovereign entities that maintain special constitutional links to Denmark, France,

and the Netherlands and form an integral part of the wider European family. The territories embrace

an increasingly strategic role for the EU, bringing assets such as vast exclusive economic zones, and

access to important natural resources, including CRM, and key maritime zones and sea routes.

The Decision on the Overseas Association including Greenland (DOAG) earmarks EUR 500 million to

support OCTs’ economic and social development, and address climate change and biodiversity loss for

2021-2027. The Commission proposed an amendment to the DOAG, which entails doubling the funds

allocated to the OCTs to EUR 999 million for the period 2028-2034.

In 2025, relations with Greenland continued to expand and intensify in a context of heightened

international interest for the Arctic, covering areas like CRM, renewable energy, connectivity, in

addition to education and fisheries. The EU-Greenland partnership was marked by two policy

dialogues, high-level visits and the inaugural EU-Greenland Week in November in Brussels.

2025 was the final year of implementation of the first Action Plan of French Polynesia’s Water Policy

(2021-2030). Results achieved included an increase in the number of municipalities distributing

drinking water, continued actions to secure water catchment areas, and the strengthening of sector

governance through a fully operational technical committee. A second Action Plan is scheduled to

cover the period 2026-2030.

EN EN

EUROPEAN COMMISSION

Brussels, 29.10.2026 SWD(2026) 324 final

COMMISSION STAFF WORKING DOCUMENT

Accompanying the document

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND

THE COUNCIL

2026 Annual Report on the implementation of the European Union's External Action

Instruments in 2025

{COM(2026) 588 final}

i

Table of contents 1. Introduction: EU response to world developments in 2025 ................................................................ 1

1.1. The EU response to Russia’s war of aggression against Ukraine (including support for Ukraine

and partner countries in addressing the global consequences) .............................................. 3

1.2. EU enlargement ....................................................................................................................... 5

1.3. European Neighbourhood Policy ............................................................................................. 8

1.4. International partnerships ..................................................................................................... 12

1.5. Humanitarian aid and civil protection ................................................................................... 14

1.6. Security and defence ............................................................................................................. 16

1.7. Peace, stability and conflict prevention ................................................................................ 19

1.8. Human rights and democracy ............................................................................................... 20

2. Delivering on our commitments: promoting EU values and interests and fostering sustainable

development globally ............................................................................................................................ 22

2.1. The Global Gateway strategy ................................................................................................ 22

2.2. ‘Team Europe’ approach ....................................................................................................... 24

2.3. Implementing the 2030 Agenda and other international and European commitments and

policies .................................................................................................................................. 25

2.4. Fragility response .................................................................................................................. 25

2.5. Policy coherence for sustainable development ..................................................................... 26

2.6. Development effectiveness ................................................................................................... 27

2.7. Support for multilateralism and addressing global challenges .............................................. 28

2.8. European financial architecture for development ................................................................ 28

2.9. Means of implementation ..................................................................................................... 31

2.10. Mobilisation of the NDICI−Global Europe cushion ................................................................ 33

3. Thematic overview ........................................................................................................................ 34

Working together towards the SDGs and results achieved with EU support ................................... 34

3.1. Delivery on the spending targets .......................................................................................... 34

3.2. Human development ............................................................................................................ 35

3.2.1. SDG 1 – Reduced poverty ................................................................................................... 35

3.2.2. SDG 2 – Zero hunger ........................................................................................................... 37

3.2.3. SDG 3 – Good health and well-being .................................................................................. 39

3.2.4. SDG 4 – Quality education .................................................................................................. 41

3.2.5. SDG 5 – Gender equality ..................................................................................................... 42

3.2.6. SDG 6 – Clean water and sanitation.................................................................................... 44

ii

3.2.7. SDG 10 – Reduced inequalities ........................................................................................... 45

3.2.8. Other major achievements ................................................................................................. 46

3.3. Green Deal ............................................................................................................................ 46

3.3.1. SDG 7 – Affordable and clean energy ................................................................................. 46

3.3.2. SDG 11 – Sustainable cities and communities .................................................................... 47

3.3.3. SDG 12 – Responsible consumption and production.......................................................... 48

3.3.4. SDG 13 – Climate action ...................................................................................................... 49

3.3.5. SDG 14 – Life below water .................................................................................................. 51

3.3.6. SDG 15 – Life on Land ......................................................................................................... 52

3.3.7. Other major achievements ................................................................................................. 53

3.4. Digitalisation, science, technology, innovation and infrastructure ...................................... 54

3.4.1. SDG 9 – Industry, innovation and infrastructure ................................................................ 54

3.4.2. Other major achievements ................................................................................................. 56

3.5. Sustainable growth and jobs ................................................................................................. 57

3.5.1. SDG 8 – Decent work and economic growth ...................................................................... 57

3.6. Migration and forced displacement...................................................................................... 61

3.6.1. SDG 10.7 – Facilitate orderly, safe, regular and responsible migration and mobility of

people, including through the implementation of planned and well-managed migration policies

...................................................................................................................................................... 61

3.7. Governance, peace and security ........................................................................................... 63

3.7.1. SDG 16 – Peace, justice and strong institutions.................................................................. 63

4. Geographic overview ..................................................................................................................... 67

4.1. Sub-Saharan Africa ................................................................................................................ 67

4.1.1. Introduction (policy developments) .............................................................................. 67

4.1.2. Implementation ............................................................................................................. 69

4.1.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters ................................................................................................ 76

4.1.4. Crisis response and preparedness ................................................................................. 77

4.2. Asia and the Pacific ................................................................................................................ 78

4.2.1. East Asia and South Asia ................................................................................................ 78

4.2.2. Central Asia ................................................................................................................... 85

4.2.3. The Pacific ..................................................................................................................... 89

4.3. The Americas and the Caribbean .......................................................................................... 93

4.3.1. The Americas ................................................................................................................. 93

4.3.2. The Caribbean ............................................................................................................... 97

iii

4.4. EU Enlargement (Western Balkans, Türkiye, Ukraine, Republic of Moldova and Georgia) . 100

4.4.1. Introduction (policy developments) ............................................................................ 100

4.4.2. Implementation ........................................................................................................... 102

4.4.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters .............................................................................................. 107

4.4.4. Crisis response and preparedness ............................................................................... 108

4.5. European Neighbourhood ................................................................................................... 108

4.5.1. European Neighbourhood East ................................................................................... 108

4.5.2. European Neighbourhood South and the Middle East/Gulf region ............................. 116

4.6. Overseas countries and territories (OCTs) ........................................................................... 125

4.6.1. Introduction (policy developments) ............................................................................ 125

4.6.2. Implementation ........................................................................................................... 126

4.6.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters .............................................................................................. 129

4.6.4. Crisis response and preparedness .............................................................................. 129

5. Managing aid ............................................................................................................................... 130

5.1. Monitoring, reporting and evaluation ................................................................................. 130

5.1.1. Reporting ..................................................................................................................... 130

5.1.2. Monitoring systems ..................................................................................................... 130

5.1.3. Reporting on Sustainable Development Goals (SDGs) ................................................. 131

5.1.4. Evaluation – review of the work programme .............................................................. 134

5.1.5. Lessons learned ........................................................................................................... 136

5.2. Aid delivery modalities ........................................................................................................ 138

5.2.1. Budget Support ........................................................................................................... 138

5.2.2. Blending ....................................................................................................................... 143

5.2.3. EFSD+, EU budget guarantees ..................................................................................... 145

5.2.4. Technical assistance .................................................................................................... 147

5.2.5. Twinning and TAIEX ..................................................................................................... 147

5.3. Non-programmable funds – rapid response ....................................................................... 148

5.3.1. Crisis response ............................................................................................................. 148

5.3.2. Resilience ..................................................................................................................... 149

5.3.3. Foreign policy needs .................................................................................................... 150

5.4. Improving ways of working.................................................................................................. 151

5.4.1. Simplification of procedures ........................................................................................ 151

iv

5.5. Communication & transparency .......................................................................................... 152

5.5.1. Communication ........................................................................................................... 152

5.5.2. Transparency ............................................................................................................... 156

5.5.3. Learning ....................................................................................................................... 157

6. Results annexes ............................................................................................................................... 158

6.1. Introduction ............................................................................................................................. 158

6.1.1. Methodological basis for selected results reported against the Global Europe Results

Framework, the EU Results Framework, the IPA III Results Framework and the IPA Performance

Framework .................................................................................................................................. 158

6.1.2. Structure of the corporate results framework ................................................................. 158

6.2. Level 2 indicators: Reporting on partner country results supported by the EU (EU RF, GERF, IPA

PF and IPA III) ...................................................................................................................... 159

6.3. Level 3: Reporting on policy mainstreaming as measured by budgetary commitments ........ 162

6.4. Latest results ............................................................................................................................ 162

6.5. Results of the implementation of the Gender Action Plan III .................................................. 163

7. Budget Support Annexes ............................................................................................................ 168

8. Financial Annexes ........................................................................................................................ 174

8.1. EU external assistance in 2025 ........................................................................................... 174

8.1.1. Introduction to financial tables ................................................................................... 174

8.1.2. Financial tables ............................................................................................................ 176

9. Financing and investment operations covered by the EFSD+ external action guarantee .......... 306

Table of abbreviations ........................................................................................................................ 320

1

1. Introduction: EU response to world developments in 2025

In 2025, the European Union faced an increasingly challenging international environment shaped by

Russia’s war of aggression against Ukraine, the conflict in Gaza and the persisting instability in the

Middle East and Africa, rising geopolitical and geoeconomic competition, disruptions on trade routes

and worsening climate and environmental crises. At the same time, democratic backsliding, human

rights violations, disinformation, and growing pressure on the multilateral system and rules-based

international order further undermined global stability.

Against this backdrop, the EU needs to take greater responsibility for its own security, prosperity and

resilience. It already achieved some important results in 2025. The EU’s response to mounting global

instability and shifting alliances through focusing more on defense, securing its Neighbourhood and

building mutually beneficial partnerships with the rest of the world.

First, the EU intensified efforts to protect peace and securityin the continent and beyond. Russia’s

continued war against Ukraine and Ukraine’s security are inextricably linked to Europe’s security as a

whole. In 2025, the EU adopted four additional packages of sanctions against Russia, with energy,

financial, trade and anti-circumvention measures, bringing the total number to 19.

By 2025, Team Europe support to Ukraine since 2022 had reached in total around EUR 193.3 billion,

including substantial military, financial, economic and humanitarian assistance. The Ukraine Facility,

worth up to EUR 50 billion over the period 2024-2027, underpinned Ukraine’s recovery, reconstruction

and modernisation and supported its path towards EU accession, including through the Ukraine

Investment Framework designed to mobilise significant public and private investment.

At the same time, the EU reinforced its overall own security and defence approach. Through initiatives

such as Readiness 2030 and the SAFE instrument, the EU opened the way for up to EUR 800 billion in

security and defence investment, including through joint procurement, without jeopardising fiscal

sustainability. The European Peace Facility remained central to the EU’s security response, supporting

Ukraine and other partners with military assistance while maintaining that expenditures with military

or defence implications are financed outside the EU budget.

Common Security and Defence Policy (CSDP) missions and operations and other rapid, flexible crisis

response tools under the EU’s external instruments were mobilised across regions to address the

immediate and longer-term consequences of conflicts, including in the Middle East, Africa and the

EU’s neighbourhood. In 2025, the EU concluded Security and Defence Partnerships with the United

Kingdom and Canada, bringing their total number to eight by the end of the year.

Second, in 2025, EU enlargement remained a geopolitical and strategic priority, with Montenegro,

Albania, the Republic of Moldova, and Ukraine emerging as frontrunners thanks to progress on

reforms and accession negotiations, as reflected in the European Commission’s Enlargement Package.

The EU also continued to support economic convergence through major funding initiatives, including

the EUR 6 billion Growth Plan for the Western Balkans and the EUR 1.9 billion Growth Plan for the

Republic of Moldova. However, accession progress in several other candidate countries slowed in

particular due to democratic backsliding, rule-of-law deficiencies, political instability, governance

challenges and unmet accession commitments.

Third, 2025 confirmed the growing centrality of economic security and resilience in the EU’s external

action. The EU acknowledged that interdependences are increasingly weaponised, notably in the

sectors of energy, new technologies and critical raw materials and strategic supply chains. The EU

advanced an economic foreign policy that links competitiveness, security and partnerships, including

2

through measures on foreign direct investment screening, outbound investment risk assessments and

critical raw materials supply chains, as well as through a reinforced trade and partnership agenda with

partners across the world. The Global Gateway strategy remained one of the main ways for the EU to

translate this agenda into concrete investment and partnerships. By 2025, the EU, its Member States

and European financial institutions had mobilised over EUR 306 billion in Global Gateway investments,

exceeding the original target of EUR 300 billion well ahead of 2027.

The EU’s clean and digital transitions continued to be central to EU external action with a strong ‘Team

Europe’ approach. The EU pursued the clean transition as an effective strategy for achieving strategic

autonomy, security and competitiveness. With EU greenhouse-gas emissions more than 40% below

1990 levels and an economy around 71% larger, the EU positioned itself as a leader in climate-aligned

growth, linking the Clean Industrial Deal, REPowerEU and the Critical Raw Materials Act(1) with external

partnerships and standards. International energy, climate and environmental diplomacy remained

high on the agenda, with the EU playing a leading role in pushing for ambitious outcomes at

multilateral forums on climate, biodiversity, ocean and sustainable finance. Global digital partnerships

were guided by the International Digital Strategy adopted in 2025, which set out a vision for

human-centric, open, secure and interoperable digital transformation through trusted connectivity,

data infrastructure and digital public services in partner countries.

Fourth, the EU reinforced its commitment to multilateralism, a rules-based order and the protection

of international law, including international humanitarian law, human rights and humanitarian

principles – as a staunch supporter of the multilateral system, the UN Charter, the 2030 Agenda and

the UN ‘Pact for the Future’. In 2025, the EU actively supported the ‘UN80 Initiative’, the UN’s internal

reform process, to ensure the United Nations remains effective, cost-efficient and responsive, across

the three pillars of the UN system (peace and security, sustainable development and human rights).

The EU played an active role in addressing global challenges through multilateral cooperation,

promoting peaceful solutions to conflicts, advancing implementation of the 2030 Agenda and the

Sustainable Development Goals, climate action and digital governance. The EU remained actively

engaged across key multilateral processes, including the Fourth International Conference on Financing

for Development, the World Social Summit, the UN Ocean Conference, the High-Level Political Forum

on Sustainable Development, the Third International Conference on Landlocked Developing Countries

and the sixteenth session of the United Nations Conference on Trade and Development (UNCTAD).

Humanitarian needs reached new peaks, with an estimated 305.1 million people requiring

humanitarian assistance and protection and nearly 295 million people in acute food insecurity at the

beginning of the year. The EU remained among the world’s leading humanitarian donors, allocating

more than EUR 2.56 billion in 2025 for needs-based humanitarian assistance in 110 countries,

alongside external efforts under the Union Civil Protection Mechanism. Major crises in Ukraine,

Palestine(2), Sudan, the Sahel, the Horn of Africa, Afghanistan, Myanmar, Venezuela and other contexts

prompted large-scale EU responses, while efforts continued to address ‘forgotten crises’ and to

safeguard humanitarian space and respect for international humanitarian law.

At the same time, record levels of forced displacement – over 117.8 million people worldwide(3) – and

persistent migration pressures along key routes towards Europe reinforced the need for

comprehensive, principled and partnership-based approaches to migration and forced displacement.

1 OJ L, 2024/1252, 3.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1252/oj 2 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. 3 Global Trends report 2025 | UNHCR

3

The EU advanced engagement with partner countries of origin, transit and destination through

route-based action plans and partnerships, while implementing a human rights-based approach to

migration and supporting protection, inclusion and durable solutions for refugees, internally displaced

people and host communities.

Throughout 2025 and beyond, the EU’s external action instruments sought and will continue seeking

to combine a fast, flexible and integrated way to respond to crises and geopolitical shocks, with high

standards of sound financial management. The EU Delegations worldwide played a key role in ensuring

a strong and coherent presence on the ground, working closely with EU Member States and European

financial institutions in a ‘Team Europe’ approach.

1.1. The EU response to Russia’s war of aggression against Ukraine (including support

for Ukraine and partner countries in addressing the global consequences)

Russia’s full-scale war of aggression against Ukraine remained a defining challenge for the European

Union’s external action in 2025. The war continued to cause human suffering, widespread

displacement and large-scale destruction of critical civilian and energy infrastructure, while

undermining the European and global security order and aggravating food, energy and economic

vulnerabilities well beyond the region. The EU framed its response as a strategic, long-term

commitment to Ukraine’s sovereignty and territorial integrity and to the defence of the UN Charter

and international law.

By the end of 2025, combined support from the EU and its Member States to Ukraine and Ukrainians

since the outset of the full-scale invasion amounted to approximately EUR 193.3 billion. This included

EUR 69.3 billion in military support, over EUR 103.3 billion in financial, economic and humanitarian

support, EUR 3.7 billion from proceeds linked to immobilised Russian assets and EUR 17 billion made

available to Member States to assist people fleeing the war. In 2025 alone, the EU covered around

84% of Ukraine’s external financing needs. EU leaders decided in December 2025 to mobilise an

additional EUR 90 billion in common borrowing for 2026-2027 to strengthen Ukraine’s defence

capabilities and ensure the continued functioning of the state, while also contributing to Ukraine’s

resilience and its closer integration with Europe’s defence industrial base.

A central pillar of the EU’s response in 2025 was the Ukraine Facility, a dedicated instrument of up to

EUR 50 billion for 2024-2027 to provide predictable and flexible support for Ukraine’s recovery,

reconstruction and modernisation in line with its EU path. The Facility combines reform-linked grants

and loans with an investment arm, the Ukraine Investment Framework, which has been endowed with

EUR 9.5 billion in EU support and is designed to mobilise up to EUR 40 billion in public and private

investment. By late 2025, up to EUR 6.9 billion had been allocated under this framework to

programmes supporting small businesses, war-affected communities, critical infrastructure and green

and digital transitions.

In 2025, following up on the commitments by G7 leaders and based on a proposal by the Commission,

the EU adopted and disbursed a financial assistance package consisting of an exceptional macro-

financial assistance (MFA) loan of EUR 18.1 billion. As part of the package, a loan cooperation

mechanism is financed by extraordinary revenues stemming from immobilised Russian sovereign

assets.

On the EU accession track, 2025 saw further progress. The screening process for Ukraine, the first step

in accession negotiations, was finalised in September 2025, and progress on reforms linked to the

fundamentals of the accession process was recorded, while work continued to support Ukrainian

4

authorities in carrying out reforms. This accession perspective informed the design and conditionality

of the Ukraine Facility and other instruments, anchoring immediate support in a longer-term

integration trajectory.

The EU response combined macro-financial support with deepening economic integration. In 2025,

the EU advanced Ukraine’s gradual integration into the single market, including steps to integrate fully

with the European energy and gas markets by early 2027, subject to accelerated reforms. Work

continued to improve connectivity through the Solidarity Lanes and support for Ukraine’s Black Sea

export corridor, and the EU mobilised more than EUR 2.3 billion, including EUR 1.55 billion in

Connecting Europe Facility grants, to improve transport links among the EU, Ukraine and the Republic

of Moldova, such as new EU-standard-gauge railway sections. A first operation under the EU’s Ukraine

Export Credit Guarantee Facility provided EUR 20 million in guarantees to support EU exports to

Ukraine, pointing to further de-risking of trade and investment.

Military and security assistance remained a core component of the EU’s response. Overall military

support provided by the EU and its Member States since 2022 reached about EUR 69.3 billion by the

end of 2025, of which EUR 6.1 billion was channelled through the European Peace Facility. The

European Peace Facility’s financial ceiling was increased in 2025 by EUR 193.3 billion through the use

of extraordinary revenues generated by immobilised Russian sovereign assets, specifically to support

the Ukrainian armed forces. The EU Military Assistance Mission in support of Ukraine had trained

around 85 200 Ukrainian military personnel by the end of 2025, while the EU Advisory Mission

continued to assist Ukrainian authorities with reforms in the civilian security sector, border

management and investigation and prosecution of international crimes. This was complemented by

essential support in areas such as de-mining, energy and accountability under NDICI−Global Europe.

EU humanitarian and civil protection assistance helped alleviate the suffering of the Ukrainian

population and made it possible to restore vital physical infrastructure. Since the beginning of the full-

scale invasion in 2022, the Commission has allocated EUR 1.2 billion for humanitarian aid programmes

in Ukraine to be implemented by partners on the ground. Support ranges from shelter and

winterisation, to healthcare, emergency food, multi-purpose cash assistance and more. In 2025, the

Commission allocated EUR 220 million in humanitarian aid for Ukraine.

Ukraine remained the largest operation ever under the Union Civil Protection Mechanism (UCPM). In

2025, the Emergency Response Coordination Centre handled 39 updated requests from Ukraine, and

the EU continued to operate three logistics hubs to pool and channel assistance, focusing on energy,

emergency response capacities, health and medical evacuation. Support included large transformers,

generators and the transfer of an entire thermal power plant fully dismantled and transported to

Ukraine representing the largest single operation to date under the UCPM. Since 2022, over 5 100

patients have been medically evacuated from Ukraine for treatment in hospitals across Europe,

including 729 patients in 2025 alone. The UCPM also remained fully integrated into the EU’s Integrated

Political Crisis Response arrangements, providing situational reporting and coordination across

institutions and Member States.

The EU response extended to people fleeing the war. Member States agreed in 2025 to prolong

temporary protection until 4 March 2027, continuing to offer access to accommodation, education,

healthcare and the labour market to more than 4 million people who have sought refuge in the EU

since 2022. A total of EUR 17 billion was made available to support Member States’ efforts in hosting

and integrating those fleeing the war.

5

Throughout 2025, the EU adopted successive sanctions packages, further restricting Russia’s access to

battlefield technologies, constraining its military-industrial base and tightening controls on energy

revenues, including a forthcoming ban on imports of Russian liquefied natural gas from 2027. The

Freeze and Seize Task Force reported that, by the end of 2025, EU Member States had frozen more

than EUR 27 billion in private assets belonging to Russian and Belarusian individuals and entities,

complementing the use of extraordinary revenues from immobilised sovereign assets to support

Ukraine. At the same time, sanctions and measures to reduce dependence on Russian fossil fuels

formed another key strand of the EU’s response. The EU’s REPowerEU roadmap and related legislation

sharply reduced Russian fossil fuels in EU imports: crude oil from 51% to 2%, refined products from

45% to 0%, gas from 43% to 12% and coal from 26% to 0% between 2021 and 2025.

Accountability for aggression and other international crimes was a further focus in 2025. The EU

supported the establishment of a Special Tribunal for the Crime of Aggression against Ukraine, with

an agreement between the Council of Europe and Ukraine signed in June and financed the advanced

team of the tribunal under external action instruments. The EU also signed the Convention

establishing the International Claims Commission for Ukraine and continued to back investigations

and prosecutorial work at national and international levels, including support for the International

Centre for the Prosecution of the Crime of Aggression and for Eurojust-coordinated joint investigation

teams.

The consequences of the war continued to reverberate across neighbouring and partner countries.

The EU intensified support to the Republic of Moldova through humanitarian assistance and

energy-security measures, including a Reform and Growth Facility and a EUR 250 million package

under a Comprehensive Strategy for Energy Independence and Resilience to eliminate dependence

on Russian energy and support integration into the EU energy market. In the wider Eastern Partnership

region, the EU’s strategic approach to the Black Sea, adopted in 2025, sought to strengthen security,

resilience and sustainable growth in a region deeply affected by the war.

1.2. EU enlargement

Enlargement remained a strategic priority in 2025, a long-term investment in Europe’s peace, stability

and prosperity and as crucial for strengthening the EU’s role on the global stage. In a more contested

geopolitical environment, marked by Russia’s war of aggression against Ukraine and heightened

systemic competition, enlargement is part of the EU’s broader response to defend the rules-based

international order, reinforce security and deepen economic ties with like-minded partners. The 2025

Enlargement Package, adopted in November, confirmed that momentum for enlargement remained

high on the EU agenda and that the accession of new Member States was increasingly within reach,

provided that partners delivered on fundamental reforms.

The EU continues to apply its ‘fundamentals first’ approach, under which the rule of law, fundamental

rights and the functioning of democratic institutions remain at the core of the accession process. The

2025 Enlargement Package provides a comprehensive, merit-based assessment of the progress made

by enlargement partners over the past year. While recognising progress in partners such as

Montenegro, Albania, the Republic of Moldova, and Ukraine, the package also noted deficiencies and

backsliding in Georgia and Türkiye. As always, the package provided recommendations to guide

aspiring EU members toward accession. This focus on the ‘fundamentals’ was supported by dedicated

support to civil society and independent media where democratic standards were under strain. The

annual Rule of Law report assessing the state of the rule of law across all EU Member States, as well

as four candidate countries: Albania, Montenegro, North Macedonia and Serbia was adopted in July

2025.

6

Montenegro consolidated its position as a frontrunner in the accession process, provisionally closing

a further six negotiating chapters in 2025 and bringing the total of provisionally closed chapters to

twelve by the end of 2025; its objective of concluding negotiations by the end of 2026 remains

contingent on sustained reform momentum. Albania opened the remaining four thematic clusters of

negotiating chapters in 2025. All six clusters are now open. Albania’s objective is to conclude

negotiations by the end of 2027. The EU continued to support regional economic integration, including

through the modernisation of payment systems and the extension of the Single Euro Payments Area

(SEPA) to the region; as of October 2025 Albania, Montenegro and North Macedonia participated fully

in SEPA schemes, significantly reducing transaction times and costs for citizens and businesses.

The EU maintained an active political dialogue with the Western Balkans, as reflected in the EU-

Western Balkans Summit of 17 December 2025, joint meetings of the Foreign Ministers in April and

November, Political Directors’ meetings in April and October, and other high-level contacts and

bilateral visits. Efforts continued to promote good neighbourly relations, reconciliation and regional

cooperation. The EU-facilitated Belgrade-Pristina Dialogue remained the only framework for the

normalisation of relations between Serbia and Kosovo.

Increasing cooperation in Common Foreign and Security Policy (CFSP) and Common Security and

Defence Policy (CSDP) became an important objective in the evolving geopolitical context. The EU

promoted partners’ full alignment with the CFSP, including EU restrictive measures, and responded to

partners’ requests to strengthen their resilience and security against hybrid and other threats. A

regional conference on information integrity was held in Skopje in November, followed by a Cyber

Security Tabletop Exercise conducted in December.

A new Security and Defence Dialogue was launched with Montenegro in December, Albania and North

Macedonia held Security and Defence Dialogues in April and May respectively in the framework of

their Security and Defence Partnerships with the EU. The EU committed EUR 36 million in European

Peace Facility (EPF) assistance to Western Balkans’ armed forces in 2025 (Montenegro, Albania and

North Macedonia). A regional seminar was organised in November to inform Western Balkan partners

about EU defence initiatives. The EU Rule of Law Mission in Kosovo (EULEX Kosovo) continued

supporting Kosovo authorities, and Operation EUFOR Althea in Bosnia and Herzegovina continued to

support local authorities in maintaining a safe and secure environment for all citizens.

The Growth Plan for the Western Balkans, adopted in 2023, moved in 2025 from design to delivery.

Its four pillars, gradual integration into the EU’s single market, regional economic integration through

the Common Regional Market, fundamental reforms and financial support via the Reform and Growth

Facility, were implemented in a mutually reinforcing manner. All partners adopted Reform Agendas,

and the pre-financing under the EUR 6 billion Reform and Growth Facility was fully disbursed to

Albania, Montenegro, North Macedonia and Serbia by June 2025. By the end of the year, EUR 396.4

million in grants and loans have been released under the Facility against the achievement of 39 reform

‘steps’, and out of this amount EUR 184.4 million in loans was disbursed to the beneficiaries’

treasuries. Overall, 38% of the 731 steps contained in the Reform Agendas were assessed as

completed in the first two 2025 reporting cycles, indicating good initial traction in reform

implementation. Leaders of Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North Macedonia

and Serbia met in Skopje in June and in Tirana in November to reaffirm their commitment to the

Growth Plan and its reform and integration agenda.

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

7

In parallel, the EU stepped up support to economic and social development in the Western Balkans

using a wide toolbox. Under the Growth Plan, a Western Balkans guarantee instrument completed its

initial envelope of EUR 60 million in EU funds, unlocking EUR 886 million in financing for small and

medium-sized enterprises. The EU also rolled out WiFi4WB, preparing the installations of free Wi-Fi

hotspots in around 500 municipalities across the region to foster digital connectivity and inclusion,

and organised the first regional EU–Western Balkans Investment Forum to mobilise investors around

reform and investment priorities. These measures complemented ongoing pre-accession assistance

under IPA III and participation in EU programmes such as Horizon Europe and Erasmus+, further

narrowing the gap between enlargement partners and the EU acquis and policies.

For Ukraine, enlargement policy was closely intertwined with security and reconstruction. The Ukraine

Facility, a multiannual instrument of up to EUR 50 billion for 2024-2027, remained the core framework

for EU support to Ukraine’s short-term recovery and medium-term reconstruction and modernisation

in line with its EU path. Under pillar I, the Commission positively assessed 45 reform and investment

‘steps’ in 2025, enabling four budget support payments totalling EUR 10.7 billion; since the Facility’s

launch, cumulative disbursements under pillar I reached EUR 26.8 billion by the end of the year. For

the first time, the Facility also subsidised Ukraine’s borrowing costs on its loans, freeing EUR 321

million in fiscal space in the state budget. Under pillar II, the Ukraine Investment Framework allocated

up to EUR 5.5 billion in guarantee cover and blended finance, with EU contributions and guarantees

totalling EUR 6.9 billion – around 70 % of the Framework’s capacity – expected to mobilise

approximately EUR 21.8 billion in public and private investment. These resources support critical

infrastructure, municipalities and private sector development, while helping integrate Ukraine into EU

value chains.

On the accession track, the bilateral screening process for Ukraine and the Republic of Moldova was

completed in September 2025 in a record time, just over 18 months. The Commission concluded that

both countries had met the conditions required to open negotiations for all clusters. Gradual sectoral

integration advanced in parallel: Ukraine and the Republic of Moldova benefited from the Deep and

Comprehensive Free Trade Area (DCFTA), from transport arrangements and from measures to

integrate fully into the European energy and gas markets by early 2027, subject to accelerated market

reforms.

In addition to the Republic of Moldova’s solid progress made towards deeper trade ties for the full

implementation of the DCFTA, other key gradual integration initiatives include The Republic of

Moldova’s successful inclusion in the EU Roam-like-at-home area, Single Euro Payments Area (SEPA)

or including the Republic of Moldova in the Cyber Security Reserve. The EU is also stepping up to

achieve integration in sectors such as energy, transport, customs and education.

The Regulation establishing the EUR 1.9 billion Reform and Growth Facility for the Republic of Moldova

for 2025-2027 entered into force in 2025, providing performance-based financial support for the

implementation of a comprehensive Reform Agenda and growth enhancing investment projects. In

the energy field, the EU and the Republic of Moldova agreed on a two-year Comprehensive Strategy

for Energy Independence and Resilience backed by a EUR 250 million package to eliminate

dependence on Russian energy, increase resilience and facilitate integration into the EU energy

market.

Not all enlargement partners moved forward on the accession path. In Georgia, there was serious

backsliding in the fundamentals across the board, with the adoption of repressive legislation

undermining fundamental rights and freedoms. The Georgian authorities’ course of action has

undermined EU-Georgia relations and moved Georgia away from the EU enlargement process. In view

8

of the developments in Georgia, the European Council concluded in June and October 2024 that the

authorities’ course of action jeopardised Georgia’s EU path, de facto leading to a halt of the accession

process.

Türkiye remained a partner of strategic importance and a candidate country, despite accession

negotiations remaining at a standstill amid serious concerns over the rule of law, respect for

fundamental rights and democratic standards. At the same time, EU and Türkiye continued re-

engaging in areas of common interest, implementing the recommendations of the Joint

Communication from November 2023, in line with the phased, proportionate and reversible approach

endorsed by the European Council. Several EU-Türkiye High-Level Dialogues were held in 2025,

including on the economy, trade, migration and security, climate and research and innovation.

Additionally, the European Investment Bank restarted operations in Türkiye. The engagement

between the EU and Türkiye on foreign and security policy issues continued through bilateral visits,

contacts and meetings at both high- and senior officials’ level. The EU High Representative/Vice-

President Kaja Kallas visited Türkiye in January 2025, while EU Commissioner Kos visited Türkiye in July

2025. The Turkish Minister of Foreign Affairs participated in the informal meeting of the EU Ministers

of Foreign Affairs (Gymnich) in Warsaw (May 2025) and in the Ministerial Meeting on Cross-Regional

Security and Connectivity in Luxembourg (October 2025). The EU Special Envoy for the

implementation of EU sanctions visited Türkiye and engaged on circumvention of sanctions against

Russia in April 2025.

A Political Dialogue at Political Directors’ level, co-chaired by the European Union External Action

Service and Commission’s Directorate-General for Enlargement and the Eastern Neighbourhood, was

held in March 2025. Overall, the EU and Türkiye intensified consultations on foreign and security

policy, with a focus on regional developments (consultation on Western Balkans in September 2025),

security and defence and counterterrorism (informal CSDP consultations and Counter-Terrorism

dialogue in November 2025). Financial assistance under IPA III continued, with EUR 100.4 million

committed in 2025 under the bilateral programme 2025-2027 and an additional EUR 310.7 million for

rural development, civil society and cross-border cooperation. The EU also maintained substantial

support for refugees in Türkiye, committing EUR 1.3 billion in support to refugees under the budget

for 2025-2027, while a new ‘visa cascade’ system was introduced in 2025 to facilitate travel for bona

fide Turkish travellers in EU Schengen area.

In parallel with supporting partners, the EU continued to prepare itself for future enlargements. The

Communication on pre-enlargement reforms and policy reviews, adopted in 2024, remained the main

reference for analysing the implications of a larger Union in terms of values, policies, budget and

governance. Work initiated under this framework advanced in 2025, feeding into discussions on the

future multiannual financial framework, on institutional reforms and on ensuring that future

enlargements strengthen the EU’s capacity to act.

In addition, the Commission developed an innovative Artificial Intelligence tool called ‘eAccession’ to

help candidate countries accelerate regulatory approximation by saving time and resources in the

process. The tool was endorsed as a Commission Corporate tool and was made accessible for

Montenegro, the Republic of Moldova, and Ukraine before other candidate countries in 2026.

1.3. European Neighbourhood Policy

In 2025, the European Neighbourhood Policy (ENP) remained an important framework for advancing

the EU’s strategic interests and values in the Eastern and Southern Neighbourhood, in fragile settings

such as in Syria, Lebanon and the conflict in Gaza. ENP action combined political engagement,

9

macro-financial assistance, Global Gateway investments and humanitarian and civil protection

measures, with a growing emphasis on economic security, energy and digital connectivity, migration

management and resilience.

In the Southern Neighbourhood and the wider Middle East and Gulf, 2025 was marked by major

institutional and policy developments and by acute crises. A dedicated Directorate-General for the

Middle East, North Africa and the Gulf started operations on 1 February 2025, under the authority of

the European Commissioner for the Mediterranean, to bring together cooperation with nineteen

partner countries from the Southern and Eastern Mediterranean to the Gulf and to promote peace,

stability, security and prosperity in the region.

Building on the 2021 Agenda for the Mediterranean and its Economic and Investment Plan, the Pact

for the Mediterranean was prepared through consultations with EU Member States, southern

Mediterranean partners, as well as a wide range of stakeholders representing different components

of civil society, including economic, cultural and social actors, academia and think tanks. It was

subsequently adopted on 16 October through the Joint Commission and High Representative

Communication on the Pact for the Mediterranean(4). EU Member States welcomed the adoption of

the Joint Communication in the Council Conclusions adopted by the Foreign Affairs Council on 20

November and the European Council Conclusions on 18 December 2025. The Pact was officially

launched in Barcelona in November 2025 together with EU Member States and the 10 southern

Mediterranean partner countries on the 30th anniversary of the Barcelona Declaration. It provides a

new strategic framework to promote peace, prosperity and stability, based on co-ownership,

co-creation and joint responsibility, and aims to build a Common Mediterranean Space that is more

connected, prosperous, resilient and secure.

In response to the war in Gaza and its regional spillovers, the EU combined diplomatic engagement

with substantial financial support. In April 2025, during the High-level political dialogue between the

EU and the Palestinian Authority, the EU proposed a multiannual Comprehensive Programme for

Palestine’s Recovery and Resilience 2025-2027 worth EUR 1.6 billion to support reforms and recovery

to the benefit of the Palestinian population.

On 20 November 2025, the EU convened the first meeting of the Palestine Donor Group (PDG) in

Brussels, co-chaired by the European Commissioner for the Mediterranean Dubravka Šuica and

Palestinian Prime Minister Mohammad Mustafa. This was a clear deliverable of the EU’s Multiannual

Comprehensive Programme for Palestinian recovery and resilience presented in April 2025, as well as

an expression of the EU’s commitment to the stability of the region, as underlined by President Ursula

von der Leyen in her State of the Union speech in September 2025.

In parallel, in September 2025 the Commission proposed to suspend certain trade-related provisions

of the Association Agreement with Israel, to adopt sanctions on extremist ministers and violent

settlers, and has put on hold bilateral support for Israel, except for support to civil society and Yad

Vashem, the World Holocaust Remembrance Center.

In March, the EU organised the ninth Brussels Conference on Supporting the Future of Syria and the

Region, reaffirming its commitment to an inclusive transition in the country. It brought a pledge of

EUR 2.5 billion with the EU and its Member States again as largest donors. The EU also stepped up its

engagement inside Syria, with a EUR 175 million package in 2025 focused on institutional

capacity-building, socio-economic recovery, and support to transitional justice, accountability and

social cohesion. On 15 November 2025, the EU convened the first Day of Dialogue in Damascus,

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bringing together Syrian civil society organisations, representatives of the Syrian Transitional

Government, and EU officials for a structured day of discussion on Syria’s transition and recovery.

Amid escalation, the EU mobilised further support under the EUR 1 billion (non-humanitarian) package

for Lebanon for 2024-2027 to support the government-led emergency response. Focus was placed on

addressing urgent needs through programmes on cash assistance, health, education, protection and

durable solutions for refugees as well as reinforcing the National Operations Room coordinating the

emergency response. In parallel, engagement on reforms continues in view of the country’s long-term

stability.

Jordan is among the EU’s most strategically significant partners in the Middle East, serving as anchor

of stability in a region under sustained geopolitical pressure. The signing of the Strategic and

Comprehensive Partnership with Jordan in January 2025 elevated bilateral relations to a new level,

providing a long-term framework for cooperation on economic growth, governance reform, the green

transition and security. It is backed by EU instruments including macro financial assistance and budget

support. The EU also deepened engagement with Iraq, a pivotal actor in regional dynamics. This

included a Cooperation Council in October 2025 and targeted collaboration on economic

diversification, connectivity, institutional resilience, and the climate and energy transitions. With a

new government in 2026 the EU is ready to deepen the partnership at a critical juncture.

Across the Southern Neighbourhood, the wider Middle East and the Gulf, the Global Gateway strategy

and Team Europe instruments were increasingly used to support green, digital and connectivity

objectives under the ENP. The Neighbourhood Investment Platform (NIP) continued to mobilise public

and private investments in strategic sectors. Strategic and comprehensive partnerships with Egypt,

Tunisia and Jordan were further developed, combining where relevant macro-financial assistance,

with budget support and investment to underpin reforms, economic stability and the green transition.

The EU completed negotiations on its trade agreement with Morocco in October 2025.

Migration remains a challenge in the Southern Neighbourhood, notably in North African countries,

which are countries of origin, of transit and of destination for migrants. In December 2025, the EU

adopted a EUR 675 million multiannual migration package to ensure continuation of support to

partner countries to establish a comprehensive and rights-based migration governance and

management system, covering protection for refugees, asylum seekers and vulnerable migrants,

migration governance, including border management and anti-smuggling, return and reintegration

support and legal migration pathways.

Institution-building remained a key component of ENP implementation. TAIEX and Twinning

contributed to reform processes across the neighbourhood in line with EU priorities, particularly in

support of the green and digital transitions and implementation of regional Economic and Investment

Plans.

In the Eastern Neighbourhood, the Eastern Partnership continued to serve as the critical, specialised

eastern dimension of European Neighbourhood Policy, acting as the primary institutional bridge

between the EUand its eastern neighbours. Operating through both bilateral and multilateral formats,

it continued to provide a flexible platform for tailored cooperation with partner countries. Throughout

2025, resilience building remained a cornerstone of EU assistance under the Eastern Partnership

framework. The EU continuously advanced regional stability, security, and peace by supporting the

Armenia-Azerbaijan normalisation process while aligning its regional policy to support the Republic of

Moldova and Ukraine on their respective EU enlargement paths. As civic space continued to shrink in

11

some countries, multilateral Eastern Partnership initiatives provided a crucial mechanism for

sustained engagement with civil society in restrictive environments.

The Joint Communication on the EU’s strategic approach to the Black Sea region (the Black Sea

Strategy) was adopted on 28 May(5). The strategy includes three flagship initiatives, designed to

accelerate implementation and demonstrate immediate progress, namely: Black Sea Maritime

Security and the establishment of a Black Sea Maritime Security Hub; a dedicated Connectivity

Agenda; and preparedness of coastal communities and blue economy sectors.

The Connectivity Agenda linking Europe with Central Asia through the South Caucasus is one of the

flagships of the Black Sea Strategy. It aims to boost economic growth, competitiveness and regional

integration, while aligning with the extended Trans-European Networks and EU’s decarbonisation

goals and international commitments. It combines reforms, digitalisation and infrastructure

investment to achieve regulatory approximation, adherence to safety norms, and interoperability. The

Connectivity Agenda remains a key instrument to address different geopolitical challenges and to

strengthen the EU’s footprint in the Black Sea and South Caucasus regions. The Agenda was politically

endorsed by the EU and partner countries at the Cross-regional Ministerial Meeting in Luxembourg in

October.

Support for governance and values reforms on a wide range of areas, including democracy, the rule

of law, public administration reform, anti-corruption, fight against organised crime, reconciliation, civil

protection, human rights, gender equality, civil society engagement, independent media and the fight

against disinformation continued throughout the year. Regional programmes such as the Partnership

for Good Governance, EU4 Integrity, Public Administration Reform and the Fight against Organised

Crime continued to work with national authorities and civil society to progress the necessary reforms.

The EU4Youth programme aimed to enhance participation by young people in society and the

economy and better match skills to labour markets. Through the EU4Gender Equality programme,

support to activities battling gender stereotypes and the provision of advice on strengthening the care

economy were undertaken. Particularly intensive were the activities to support civil society and

independent media in the region.

Within the ongoing EU4Energy programme, capacity building and strengthening of the legislative

framework in the partner countries was undertaken. This has assisted to streamline the diverse

regulatory environments that hinder interconnections and energy market integration which in turn,

has contributed to creating a more stable market for investment.

Partner countries continued to benefit from environmental and climate resilience programmes such

as EU4Climate Resilience, FINTECC EU4Climate window, EU4EMBLAS, EU4Environment, PPRD East 4

and EU4Green Recovery East. In addition, the E5P fund (Eastern European Energy Efficiency and

Environment Partnership) - a multi-donor, blending instrument managed by EBRD supports actions

focusing on municipal energy efficiency and environmental investment. Support to local authorities in

accessing finance to implement their Sustainable Energy and Climate Action Plans (SECAP) continued

under the third phase of the Covenant of Mayors East. The programme promotes new signatories to

the 2030 targets and provides support for financing municipal SECAP-related projects.

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1.4. International partnerships

In 2025, the EU further strengthened its international partnerships as a way to overcome the

fragmentation of the global environment marked by overlapping crises, geopolitical and geoeconomic

tensions and persistent pressure on multilateralism. The EU’s engagement was structured around

NDICI−Global Europe as the main financial instrument and Global Gateway as the strategic external

investment EU offer to promote sustainable, rules-based connectivity, green and digital transitions

and human development, with a strong emphasis on mutually beneficial cooperation with partner

countries.

The second Global Gateway Forum hosted in Brussels in October represented a major diplomacy

moment with Commission President von der Leyen announcing that the EU, its Member States and

European financial institutions, acting together, had mobilised over EUR 306 billion in Global Gateway

investments, thus surpassing the original objective of up to EUR 300 billion for 2021-2027. On this

occasion, the Global Gateway Investment Hub was launched to help identify, prepare and facilitate

private-sector investment in partner countries, complementing the expansion of EFSD+ (European

Fund for Sustainable Development (Plus)) guarantees and blending operations.

Across regions, Global Gateway investment agendas were rolled out and deepened. In Sub-Saharan

Africa, implementation of the Global Gateway Africa–Europe Investment Package and the EU–AU Joint

Vision for 2030 advanced, including support for transport and economic corridors, regional electricity

integration and the Africa-Europe Green Energy Initiative, as well as local vaccine manufacturing under

the Manufacturing and Access to Vaccines, Medicines and Health Technologies (MAV+) Initiative. In

Latin America and the Caribbean, more than 80 projects progressed under the EU–LAC Global Gateway

Investment Agenda, notably in regional electricity integration, the EU–LAC high-performance

computing network and the Global Gateway Sargassum Initiative. In Asia and the Pacific, a

EUR 12 billion Team Europe Global Gateway investment package for Central Asia was announced,

accompanied by work along the Trans-Caspian Transport Corridor and cooperation on critical raw

materials; the EU also announced EUR 300 million in Global Gateway investments for the Pacific, and

advanced energy connectivity and Just Energy Transition Partnerships in South and South-East Asia.

Partnerships with overseas countries and territories were reinforced, including a proposal to double

the DOAG allocation for OCTs to EUR 999 million. The EU and the Organisation of African, Caribbean

and Pacific States (OACPS) continued working towards the implementation of the Samoa Agreement.

Support for the green transition included deployment of the Africa-Europe Green Energy Initiative,

nature-positive investment and financing solutions, e.g. under NaturAfrica, and innovative Forest

Partnerships, alongside increased efforts on climate-related investments and a stronger focus on the

ocean in line with the European Ocean Pact adopted in June 2025. Support for sustainable agrifood

systems and agricultural value chains was stepped up, with actions such as DESIRA+ that promoted

the protection of soils, the use of ‘forgotten crops’, the use of agroforestry approaches in cocoa, coffee

and cashew crops and better access to local and regional markets. Circular-economy action was

supported in more than 40 countries through global initiatives and in over 80 additional countries via

regional and national programmes. Digital cooperation was scaled up under the International Digital

Strategy, with key flagships such as the EU-Africa-India Blue Raman digital corridor, the EU–LAC

supercomputing network for artificial intelligence, satellite connectivity initiatives and

digital-economy packages with partner countries. Sustainable transport investment across all regions

was promoted in line with the Sustainable Transport Investment Plan, including green shipping, public

transport and rail-decarbonisation facilities.

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Human development also remained central to EU international partnerships. In health, the EU

supported local manufacturing of health products, health-system strengthening and universal health

coverage, health security and health innovation through digital solutions, and co-hosted the Gavi

High-Level Pledging Summit in June 2025. In education, the political target of dedicating at least 10%

of NDICI−Global Europe to education over 2021-2027 continued to be on track to be achieved,

reaching 12% over 2021-2025 and covering around 70 partner countries, with regional initiatives such

as theTeam Europe Initiative ‘Opportunity-driven Skills and Vocational Education and Training in

Africa’ and the Youth Mobility for Africa Global Gateway flagship initiative. Water, sanitation and

hygiene investments were scaled up through blended operations in countries such as the Democratic

Republic of the Congo, Cameroon, Pakistan, Benin, Ecuador and the Dominican Republic. Youth

participation and empowerment advanced through more than 50 Youth Sounding Boards and youth

policy dialogues on Global Gateway. Gender equality remained a core priority: in line with the Gender

Action Plan, the share of external actions with gender equality as a principal or significant objective

reached to 83% over 2021-2025, and gender and inequality(6) markers began to be applied to EFSD+

operations.

Particular emphasis was placed on strengthening the ‘Team Europe’ approach, bringing together EU

institutions, Member States, European development finance institutions, implementing partners and

the private sector to deliver greater impact. The EU also deepened its engagement with partner

countries through policy dialogues and business-to-business exchanges aimed at supporting locally

owned reform and investment agendas. Throughout 2025, a series of regional business forums helped

connect European companies with investment opportunities under Global Gateway, including the EU–

Central Asia Investors Forum in Uzbekistan, the EU–Latin America and Caribbean Business Forum held

in the framework of the EU–LAC partnership, or the EU–Africa Business Forum convened in Angola on

the occasion of the EU-AU seventh Heads of State and Government Summit.

International partnerships also focused on migration, fragility, governance and peacebuilding. The EU

strengthened cooperation with partner countries on migration and forced displacement

management, including by addressing the root causes of irregular migration and forced displacement

through NDICI−Global Europe geographic programmes and the EU Trust Funds, while irregular border

crossings into the EU decreased by more than one-quarter in 2025, to 178 000. Flagship joint

instruments such as the EU Trust Fund for Africa (which entered its final year) and the Colombia Trust

Fund continued to deliver substantial results in jobs, basic services, migration management,

governance and peacebuilding in fragile contexts. The NDICI−Global Europe Rapid Response Pillar and

the thematic programme for peace, stability and conflict prevention enabled swift crisis response and

long-term peacebuilding in Ukraine but also for the wider Eastern Neighbourhood and globally,

including in Palestine, Israel, Lebanon, Syria, Sudan and the Sahel. Support to multilateral

peacebuilding architectures, Chemical, Biological, Radiological and Nuclear (CBRN) risk mitigation,

counter-terrorism, cybersecurity and the fight against organised crime contributed to global security

partnerships.

International partnerships were underpinned by a strong commitment to multilateralism and the

2030 Agenda. In terms of public finance, the EU and its Member States collectively remained the

world’s leadingprovider of official development assistance (ODA) with EUR 82.5 billion in 2025,

accounting for 48% of global ODA(7) (0.44% of the EU’s gross national income) based on preliminary

OECD data. However, data shows a significant global decrease in total ODA, mainly driven by severe

6 Only for INTPA managed programmes. 7 Global ODA is defined here as including the ODA reported by the EU collectively and all other donor countries.

14

US disengagement. Cooperation arrangements with international financial institutions, including a

new arrangement with the World Bank Group around high-impact Global Gateway investment

projects, and support for multilateral development bank reforms aimed to unlock substantial

additional financing for sustainable, job-rich, climate-resilient and gender-equal growth. Engagement

in the G7, G20, OECD-DAC and UN processes, including an OECD-DAC Peer Review and global forums

on nutrition, circular economy and the ocean, reinforced the EU’s role as a champion of the

Sustainable Development Goals.

1.5. Humanitarian aid and civil protection

In 2025, EU humanitarian aid and civil protection responded to exceptionally high levels of global

need. Operating in contexts of both protracted and newly emerging crises, responding during armed

conflicts, and to natural hazards and climate-related shocks. Humanitarian partners delivered aid to

those most vulnerable, despite increasing encroachment on humanitarian space and widespread

impunity among perpetrators of violence. EU humanitarian assistance remained strictly needs-based

and guided by the humanitarian principles of humanity, neutrality, impartiality and independence.

Together, the EU and its Member States continued to be among the largest humanitarian donors

worldwide. The EU provided emergency relief and disaster preparedness support in around 110

countries, while civil protection assistance under the Union Civil Protection Mechanism (UCPM) was

increasingly mobilised both inside and outside the Union to respond to complex, multi-hazard

emergencies.

The EU’s overall budget for humanitarian aid and civil protection reached EUR 2.839 billion in

commitments in 2025, including EUR 2.56 billion for humanitarian aid assistance and EUR 245 million

for the UCPM. EU humanitarian funding in 2025 provided relief in 110 countries, more than those

included in UN appeals, reflecting the EU’s global reach and attention to both headline emergencies

and underfunded, forgotten crises.

Needs remained at record levels, 305.1 million people(8) were estimated to require humanitarian

assistance and protection worldwide in 2025. Amidst a fiscal, moral and legitimacy crisis within the

humanitarian system itself. A ‘hyper-prioritised’ Global Humanitarian Overview(9) was published in July

reflecting the deep financial crisis of the global humanitarian sector and thus covering only about one

third of people in need. The significant humanitarian financial crisis reached an all-time low with the

US suspending all aid in 2025. This has forced organisations to scale back or suspend operations,

reducing life-saving assistance and has left affected populations even more vulnerable. To address the

challenges the current humanitarian system is faced with, donors and partners have been doing their

best to maximise the efficiency of available funding. Part of this effort is directed towards system-wide

enabling services given their importance in a safe, principled and needs-based response (information

management, security and logistics). This is particularly important as such services have been

disproportionately hit by the funding cuts. The EU remained principled, focusing on the most

vulnerable in situations of armed conflict, forced displacement, food insecurity and health

emergencies. The global hunger crisis stands atop EU’s agenda: around EUR 600 million was allocated

to humanitarian food and nutrition assistance. Around 295 million people faced acute food insecurity

in 2025, and famine was confirmed simultaneously in Gaza and Sudan for the first time.

8 https://www.unocha.org/publications/report/world/global-humanitarian-overview-2025-enarfres 9 https://www.unocha.org/publications/report/world/global-humanitarian-overview-2025-cruel-math-aid-cuts-hyper-

prioritized-report-june-2025

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In the mid of 2025, INFORM(10) Severity (see figure 1) classified 57 of the 115 humanitarian crises with

an available score as high or very high in severity, based on their impact, the conditions of affected

people and the complexity of the operating environment. Africa remained the highest-risk region and

accounted for 12 of the 16 countries in the highest-risk group, while Asia recorded an overall reduction

in risk, driven by lower socioeconomic vulnerability and improved coping capacity, particularly

infrastructure.

Figure 1. INFORM Risk 2026 (left) and INFORM Severity July 2025 (right)

The EU supported a wide range of sectoral interventions through its partners, including food

assistance, nutrition, health, water, sanitation and hygiene, shelter, protection and education in

emergencies. Health remained a core sector, with an allocation of around EUR 400 million. Protection

represented around 15% of the humanitarian budget, reflecting the need to respond to grave

violations against children and widespread gender-based and conflict-related sexual violence. Despite

a significant reduction in global funding for education in emergencies, the EU maintained its

commitment to dedicate at least 10% of the initial annual humanitarian budget to education in

emergencies, allocating more than EUR 180 million in 2025.

The EU played a central role in responding to the world’s most severe emergencies. In Ukraine, where

Russia’s war of aggression entered its fourth year and 12.7 million people remained in need of

assistance, the EU allocated EUR 220 million in 2025, bringing its total humanitarian assistance since

February 2022 to EUR 1.2 billion; neighbouring The Republic of Moldova received EUR 9.5 million for

cash and protection support for refugees. In the Gaza Strip, facing an unprecedented humanitarian

disaster in which the entire population are exposed to security and protection risks, the EU committed

EUR 220 million in humanitarian funding in 2025. In Sudan, the world’s largest displacement crisis with

more than 10 million internally displaced people and famine confirmed in parts of North Darfur and

South Kordofan, the EU allocated over EUR 273 million, including more than EUR 161 million inside

Sudan. The EU also remained a major humanitarian donor in crises such as Syria (over EUR 204 million

in 2025), Afghanistan (over EUR 161 million), Yemen (EUR 120 million), the Horn of Africa (EUR 157

million), the Great Lakes region (EUR 129 million), the Central Sahel (nearly EUR 124 million) and

Venezuela, where EU funding of more than EUR 52 million represented around 43% of total

humanitarian contributions.

In addition to geographical funding, the EU used its emergency funding and operational support tool,

ReliefEU that provides fast flexible humanitarian response through emergency funding as well as

10 INFORM. 2026. https://drmkc.jrc.ec.europa.eu/inform-index . INFORM is a collaboration of the Inter-Agency Standing Committee Reference Group on Risk, Early Warning and Preparedness and the European Commission. The European Commission Joint Research Centre is the scientific lead of INFORM. DG ECHO is a founding partner and member of the INFORM Steering Group, contributing humanitarian-policy and operational expertise and supporting the use of INFORM evidence in risk-informed decision-making.

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through strategic logistical support such as humanitarian air bridge operations, warehousing and

transport services. In 2025, over EUR 110 million was allocated to ReliefEU operations, which

responded to 20 crises in 18 countries by chartering 127 flights, transporting 6 780 tonnes of aid and

32 641 passengers, and mobilising 1 205 tonnes of pre-positioned stocks. In addition, ReliefEU

provided rapid additional funding to support the response to sudden-onset disasters. Through ALERT

and the support to the IFRC’s Disaster Response Emergency Fund, this amounted to EUR 53.5 million

in first line emergency funding via 118 mobilisations in 60 countries.

In addition, humanitarian supply chains are critical for humanitarian operations. It accounts for an

estimated 60-80% of the total humanitarian spending worldwide, from the procurement of relief

items to their final delivery. Optimising the expenditure for the supply chain will lead to efficiency

gains. On 10 December 2025 at a High-Level Conference, conclusions were endorsed by 63

organisations to work towards a more strategic approach to supply chain making it more

collaborative, efficient, and resilient.

Civil protection is an integral part of the EU’s response to emergencies, complementing humanitarian

aid and development cooperation by providing rapid, coordinated assistance in the event of natural

and human-induced disasters within and beyond the Union. The Mechanism was activated, for

example, in response to the earthquake in Myanmar, the Ebola outbreak in the Democratic Republic

of the Congo, and severe floods in Cabo Verde, where it facilitated the provision of expert teams,

personal protective equipment, vaccines, shelter and other essential items. Ukraine remained the

largest UCPM operation to date. In 2025, the Emergency Response Coordination Centre (ERCC)

processed 39 updated requests from Ukraine, while the UCPM facilitated the delivery of critical energy

equipment. In Gaza and the wider Middle East, the ERCC coordinated medical evacuations for 344

patients and 941 companions.

1.6. Security and defence

In 2025, in a context of intensifying geopolitical competition and a rapidly deteriorating global security

environment, the EU further advanced the implementation of its security and defence agenda within

the EU’s integrated approach to peace and security. Efforts focused on (i) sustained and large-scale

military support to Ukraine; (ii) strengthening the Union’s role as a security provider through Common

Security and Defence Policy (CSDP) missions and operations and the European Peace Facility; (iii)

enhancing the EU’s preparedness and resilience against hybrid, cyber and other global threats,

including via sanctions, export-control measures and implementation of the EU Space Strategy for

Security and Defence; and (iv) strengthening partnerships in the area of security and defence. These

efforts were aimed at fostering an integrated approach to multi-faceted security and defence

challenges, such as cyber and hybrid threats, maritime security, crisis management, while advancing

the agenda of climate, peace and security, youth peace and security and cultural heritage in crisis, in

addition to the EU’s human rights due diligence policy as regards security sector support.

The EU remained firmly committed to supporting Ukraine’s self-defence against Russia’s war of

aggression. The European Peace Facility continued to be instrumental in providing military support to

the Ukrainian armed forces, both by financing assistance measures and by reimbursing Member States

for the provision of military equipment. In 2025, assistance measures adopted since 2021 represented

commitment appropriations of EUR 3.56 billion and payment appropriations of EUR 4.22 billion, with

a specific reimbursement scheme for EU Member States’ deliveries to Ukraine running until 2027. The

financial ceiling of the Facility was increased by EUR 1.9 billion generated as extraordinary revenues

from immobilised Russian assets in support of the Ukrainian armed forces. At the same time, the

Military Assistance Mission and the EU Advisory Mission continued to provide training, advice and

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support to Ukraine’s security and law-enforcement institutions, closely coordinated with other EU

instruments and bilateral efforts.

Beyond Ukraine, the European Peace Facility further consolidated the EU’s role as a security partner

for a growing number of countries and regional organisations, including in Africa, the Western Balkans

and the Neighbourhood, including the Middle East, while maintaining strong links with budget-funded

instruments to ensure coherence and complementarity. In 2025, 15 new assistance measures were

established by Council decision, in addition to the continued implementation of measures adopted

between 2021 and 2024.

CSDP missions and operations continued to underpin the EU’s contribution to peace and security in

partner countries. In 2025, civilian CSDP missions, EU Special Representatives and the Kosovo

Specialist Chambers accounted for around 90% of CFSP commitments, 70% of which for civilian

missions receiving EUR 291.4 million out of total CFSP commitments of EUR 416.7 million. The

mandates of eight civilian CSDP missions were renewed, including missions supporting border

management, security and judicial institutions in the Middle East, North Africa, the Western Balkans,

the Eastern Neighbourhood and the Gulf of Guinea. The EU’s two civilian missions in support of the

Palestinian authorities – the police and rule-of-law mission and the border assistance mission for the

Rafah crossing point – adapted operations to the evolving security situation while preparing for

possible redeployment options decided by the Council. In the context of the importance of lessons

and knowledge management in peace, security and defence actions, a second Impact Evaluation in

civilian CSDP missions was carried out on the EU advisory mission in Iraq.

Partnerships and dialogue remained central to the Union’s security and defence policy. High-level

forums and implementation dialogues brought together EU Member States, partner countries,

international organisations, civil society and experts, to discuss peace, security and defence priorities,

including the implementation of the Strategic Compass and the use of the European Peace Facility and

NDICI−Global Europe in support of global peace and security. Security and Defence Dialogues were

pursued with a wide range of partners, and tailored Security and Defence Partnerships continued to

be rolled out (notably with the United Kingdom and Canada in 2025), enhancing cooperation on cyber

and hybrid issues, disinformation, counterterrorism, non-proliferation, maritime security, space,

resilience and crisis management. The strategic partnership with NATO was further strengthened

through close coordination on support to Ukraine, regular high-level and senior-officials’ contacts and

structured dialogues on emerging and disruptive technologies, climate, security and defence, military

transport, space, resilience, cyber and defence industry. In a multilateral forum, the EU and the United

Nations agreed on a new Joint Priorities on Peace and Security for 2025-2028, enhancing field-based

cooperation and expanding cooperation on specific issues.

The EU intensified efforts to address hybrid and cyber threats and to uphold a rules-based order in

cyberspace. Hybrid and cyber threats expanded further in 2025, with state and non-state actors using

malicious cyber activities, disinformation, economic coercion and other hybrid tools targeting our

democratic institutions, electoral processes and critical infrastructure. The EU continued to promote

responsible state behaviour, while making active use of its Cyber Diplomacy and Hybrid toolboxes,

including through the adoption of sanctions under both its regimes to counter cyber attacks and

destabilising activities by Russia. Under NDICI−Global Europe, 80 ongoing thematic interventions

responded to global threats and challenges – including cyber security, maritime security,

disinformation, terrorism and the use of new technologies in conflict – and 14 new interventions on

global threats were adopted in 2025. EU regulation was also developed to better address such threats,

such as the revised Cybersecurity Act proposal, which includes proposals to prevent high-risk suppliers

from receiving any EU funding.

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Controlling the trade in security-sensitive goods remained a key element of the EU’s security and

human-rights policy. The EU strengthened implementation of the Regulation on trade in certain goods

that could be used for torture or capital punishment by updating the control lists and expanding the

scope of regulated goods in 2025 through a delegated act that had been prepared in close consultation

with EU Member State experts and was welcomed by United Nations mechanisms and civil society.

This was accompanied by reporting on export authorisations, the activities of the Anti-Torture

Coordination Group and a review report of the Regulation, confirming the importance of this regime

in preventing EU operators from contributing to serious human rights violations abroad. The EU’s

involvement in the Kimberley Process continued to address the security and human-rights risks linked

to conflict diamonds, including the implications of Russia’s war of aggression against Ukraine, and to

advocate for substantive reform of the scheme, even though no consensus could be reached in 2025

on expanding the definition of ‘conflict diamonds’.

Addressing global and trans-regional threats, including CBRN risks, terrorism and violent extremism,

remained a major priority. By the end of 2025, there were 80 ongoing thematic interventions

responding to global threats and 14 interventions a5 under NDICI−Global Europe. These interventions

supported actions on early warning and foresight, human security, cyber and maritime security,

accountability and prevention of electoral violence, as well as CBRN risk mitigation, where 63 countries

received specialised support for inter-agency coordination, risk assessments and national action plans.

Under CFSP, 12 new non-proliferation and disarmament actions were signed, bringing the total

number of ongoing actions to 30 with commitments of EUR 97.7 million, including support to the

Organisation for the Prohibition of Chemical Weapons’ activities in Syria and Ukraine and to the 2026

Review Conference of the Non-Proliferation and Biological and Toxin Weapons Conventions.

In the space domain, the EU continued implementing the EU Space Strategy for Security and Defence,

which aims to strengthen the Union’s posture as a space actor and to protect space systems and

services that are critical for security, defence and crisis response. Work advanced on measures to

enhance the resilience of space-based services, improve space situational awareness and integrate

space solutions into CSDP missions and operations, crisis-response mechanisms and border

management. These efforts were closely linked to emerging initiatives on military mobility, defence

innovation and critical infrastructure protection under the wider security and defence policy

framework.

Counter-terrorism remained an important dimension of the EU’s external security action. The

Counter-Terrorism and Security Experts’ Network continued to contribute to situational awareness

and to guide programmatic support in regions affected by terrorism and violent extremism, including

through capacity-building for law-enforcement and criminal justice systems, prevention of

radicalisation and rehabilitation and reintegration of violent extremist offenders. The EU sustained its

role in multilateral counter-terrorism forums, including the EU-UN Global Counterterrorism Forum,

where it helped shape responses to emerging threats and promote human-rights-compliant

approaches to counter-terrorism and the prevention of violent extremism. Preventing and fighting

organised crime, including cybercrime, continued to be a key focus of the EU’s external security action

in 2025, with efforts to strengthen partner countries’ law-enforcement, judicial, financial and

intelligence capacities and to promote implementation of multilateral standards. In Latin America and

the Caribbean, EL PAcCTO 2.0 and COPOLAD supported the entire criminal-justice chain and the

development of balanced, evidence-based drug policies, fostering regional and bi-regional

cooperation. In Africa, regional programmes such as SECFIN, and related initiatives targeted organised

and financial crime, illicit financial flows and money-laundering, reinforcing institutions and

cross-border cooperation in line with international standards. In the Middle East and North Africa,

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regional programmes such as Euromed Police, Euromed Justice, EU4Monitoring Drugs and

CyberSouth+ enhanced capacities of authorities working in the criminal justice chain to fight organised

crime in line with EU standards and joint priorities under the framework of the Pact for the

Mediterranean.

1.7. Peace, stability and conflict prevention

In 2025, against a backdrop of Russia’s continued war of aggression against Ukraine, the war in Gaza,

persistent instability in the Sahel and a record 122 million people forcibly displaced worldwide, the EU

further strengthened its integrated approach to conflicts and crises. Action combined diplomatic

engagement, development cooperation, humanitarian aid, civil protection, crisis response and

security instruments to prevent conflict, support peace processes, stabilise fragile contexts and

address global and trans-regional threats.

The programme on peace, stability and conflict prevention under NDICI−Global Europe continued to

support multilateral and civil-society actors in conflict settings, preventing violence and promoting

dialogue, reconciliation and inclusive governance. By the end of 2025, there were 78 ongoing thematic

interventions in conflict prevention, peacebuilding and crisis preparedness that supported multilateral

and civil society actors in conflict-affected or conflict-prone settings to prevent conflict escalation and

promote dialogue and reconciliation, including via innovative approaches. An additional 18 new

interventions addressed global peace and security concerns by supporting mediation, Women, Peace

and Security, disinformation, mine action, accountability and the prevention of electoral violence, and

supporting UN peacebuilding tools. Timely crisis-response measures were launched under the Rapid

Response Pillar of NDICI−Global Europe to help preserve or restore conditions for peace and respect

for human rights. By end-2025, 257 crisis-response interventions were ongoing and 78 new

interventions were adopted during the year, with 38% of new actions in the Middle East and North

Africa, 26% in Europe, 16% in Sub-Saharan Africa and the remainder at global level and in Asia and the

Americas. This included providing essential support for the response to the war in Ukraine, in areas

such as demining, energy and accountability, but also for the wider Eastern Neighbourhood and

globally, including in Palestine, Israel, Lebanon, Syria, Sudan and the Sahel, among others. These

interventions addressed both the drivers and the consequences of instability and hostility, such as

disinformation, hate speech or gender-based violence.

Initiatives such as the RESILAC2 programme in the Lake Chad Basin, focusing on human capital,

economic recovery and natural resource management, and the Green Corridor in the Democratic

Republic of the Congo, which integrates Global Gateway investments with the

humanitarian-development-peace nexus, illustrate this multi-dimensional approach. In South Asia, a

EUR 5 million programme was launched to strengthen resilience to violent extremism in the digital

space and regional cooperation against technology-enabled crime and terrorism, while a new action

on the financial and digital dimensions of migrant smuggling formed part of a EUR 78 million EU

contribution to the Global Alliance to Counter Migrant Smuggling.

In fragile and conflict-affected settings, the EU maintained a flexible and agile engagement, working

closely with local partners, civil-society organisations, youth and women’s organisations to build

resilience and promote peace, preferably in a ‘Team Europe’ approach. Global initiatives to protect

civic space, such as the ‘EU System for an Enabling Environment’, monitored trends and built

civil-society capacities in 80 countries, while a Human Rights Crisis Facility supported human rights

through confidential projects in closed environments. In Afghanistan, the EU adopted an EUR 83

million programme to support basic needs and livelihoods under a ‘for women, by women’ approach

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and allocated an additional EUR 38.5 million to address displacement, illustrating gender-responsive

support in a highly fragile context.

Foreign-policy instruments complemented these efforts. From the CFSP budget, EUR 416.7 million in

commitments were implemented in 2025, of which 70% supported 14 civilian CSDP missions, 15% the

Kosovo Specialist Chambers, 8% non-proliferation and disarmament actions, 5% EU Special

Representatives and 2% other actions. Eight civilian CSDP mission mandates were renewed, including

those supporting border management, security and judicial institutions in Mali, Armenia, the Republic

of the Republic of Moldova, the Occupied Palestinian Territory and the Gulf of Guinea; four new EU

Special Representatives were appointed and three existing mandates extended, covering human

rights, key peace processes and regional crises in, inter alia, the Western Balkans, the Middle East, the

Gulf region, the South Caucasus and the Great Lakes. CFSP-funded non-proliferation and disarmament

work included 12 new actions, bringing to 30 the number of ongoing projects with commitments of

EUR 97.7 million, supporting global treaties and mechanisms on weapons of mass destruction, small

arms and light weapons, mine action and arms-export control.

The EU also invested in addressing global and trans-regional threats that can fuel instability. Under

the peace, stability and global-threats strands, 63 countries received specialised support to mitigate

chemical, biological, radiological and nuclear risks through national CBRN teams, action plans and

critical-infrastructure protection, with specific support to Ukraine on CBRN detection, cybersecurity

and demining. Counter-terrorism and prevention of violent extremism were advanced through

instruments such as the EU-UN Global Terrorist Threat Facility, which provided targeted support

packages to countries such as Iraq, Uzbekistan, Nigeria and Somalia and assisted the reintegration of

people associated with Da’esh, particularly in Central Asia. Cybersecurity and resilience were

strengthened via the EU CyberNet network which was expanded to the Indo-Pacific, connecting 571

experts and 123 organisations, and Budapest Convention-aligned legal reforms in nine partner

countries.

Humanitarian aid and civil protection activities contributed to stability and conflict prevention through

the humanitarian-development-peace and climate-security nexuses. In 2025, disaster preparedness

funding reached EUR 81 million and one in three EU-funded humanitarian projects included a

preparedness component; at the same time, 34 prevention and preparedness projects were

co-financed under the Union Civil Protection Mechanism, and regional civil protection programmes in

the EU’s neighbourhood strengthened disaster resilience and risk management capacities. The EU

intensified advocacy for respect of international humanitarian law, principled humanitarian space and

the protection of civilians, including through a EUR 30 million programme with the International

Committee of the Red Cross to prevent IHL violations and the launch of the first annual ‘IHL in Focus’

report, while maintaining a strong focus on protection, gender-based violence and child protection in

its humanitarian operations.

1.8. Human rights and democracy

In 2025, the EU promoted human rights and democratic principles(11) amidst widespread human rights

abuses and violations, democratic backsliding, shrinking civic space, attacks against multilateralism,

and sharp reductions in overall global financial flows. Human rights and democracy remained at the

core of EU external action and enlargement policy, with a strong focus on protecting civic space,

11 More details available in the 2025 Annual Report on Human Rights and Democracy in the World. HR(2026)132;

https://www.eeas.europa.eu/eeas/eu-annual-reports-human-rights-and-democracy_en

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promoting youth participation, gender equality and women’s empowerment, strengthening the rule

of law and accountability, and applying a human rights-based approach.

Financial support for human rights and democracy was provided in various ways. The Instrument for

Pre-Accession Assistance III and NDICI−Global Europe continued to fund human rights, democracy,

rule-of-law and governance initiatives, including protection of human rights defenders and support to

national human rights institutions. Flexible and demand-driven funding was channelled through the

European Endowment for Democracy, which empowered pro-democracy actors, civil society and

independent media across the Neighbourhood, the Western Balkans, Türkiye, Eurasia and the Middle

East and through the Human Rights Crisis Facility and the EU mechanism for the protection of human

rights defenders (ProtectDefenders.eu) globally, including in Sub-Saharan Africa, Latin America and

Caribbean and Asia-Pacific. Under the regional programming, the decision action ‘Safeguard of basic

rights and democratic governance in the Southern Neighbourhood for 2025-2027’ (EUR 73.7 million)

has been adopted combining support to the regional civil society facility, support to civil society in

Morocco and Tunisia, and contributions to EUPI (Middle East Peace process) and European

endowment for democracy.

Dedicated projects enabled swift, targeted and confidential responses to address the most acute

human rights challenges through a wide range of actions, including emergency response, legal support

to human rights defenders and documentation of human rights violations.

In 2025, the EU provided protection support to at least 10 460 human rights defenders and family

members through its emergency fund and the flagship programme ProtectDefenders.EU. The civil

society-led ‘EU System for an Enabling Environment’ (EU SEE) issued 462 alerts in 63 countries,

triggering targeted interventions in 26 contexts to counter restrictions on civic space, boost civil

society resilience, and protect human rights defenders.

The EU continued to tackle global human rights challenges through long-term thematic partnerships

with civil society. Through the United Against Torture Consortium of NGOs, EU funding reached over

200 anti-torture organisations in over 100 countries, including support to UN treaty-body reviews,

crisis-response actions, survivor support and specialised training. A Global Consortium for Death

Penalty Abolition was active in approximately 40 countries.

The EU continued to strongly support indigenous peoples’ rights in 2025. It supported the Indigenous

Navigator and the Indigenous Peoples’ Centre for Documentation, Research and Information (DOCIP),

which provided advocacy training to 7 500 indigenous representatives in 2025.

The EU contributed to strengthening the international criminal justice system, by supporting the

International Criminal Court, the Eurojust Genocide Network and a Global Initiative against Impunity

for International Crimes and Serious Human Rights Violations.

On media freedom support, EU-funded media development consortia helped strengthen the

resilience of independent media and journalists worldwide, countered harmful information, and

contributed to fostering a more enabling environment for public-interest media, with particular

attention to women journalists and media working in underserved areas. The EU also partnered with

UNESCO to implement Guidelines for the Governance of Digital Platforms. These initiatives are part

of an increase in funding addressing independent media and information integrity.

Democratic participation and electoral processes were another core focus of EU funding in 2025. Full

election observation missions were deployed to Bolivia, Ecuador, Guyana, Honduras, Kosovo, Malawi

and the Philippines; election expert missions to Kosovo, Iraq and Suriname; and follow-up missions to

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Colombia, Guatemala, Kenya, Lesotho, Maldives, Nigeria and Timor Leste, contributing to

transparency, inclusiveness, reduction of electoral violence and acceptance of credible results.

The EU remained a leading global actor in electoral assistance, focusing on credible, inclusive and

transparent processes, especially in politically fragile or transitional contexts. EU support prioritised

electoral management bodies, civil society and media capacity building, conflict prevention and

inclusive participation. In the Western Balkans and Eastern and Southern Partnership regions, the EU

continued supporting electoral administration and electoral processes through targeted technical

assistance. For instance, the EU provided targeted technical assistance for electoral and governance-

related efforts in Syria and Iraq, including support for inclusive transitions, media and access to justice,

for example. In various African countries, the EU backed technical preparations, legal and

constitutional expertise, and citizen engagement, and it supported observation and preventive

diplomacy missions of the African Union and regional groupings.

Through the global Women and Youth Democratic Engagement programme (WYDE), the EU further

deepened promotion of the civic and political participation of women and young people.

Beyond elections, the EU strengthened effectiveness and coordination of its approach to democracy

support, through the Team Europe Democracy initiative, funded under the human rights and

democracy programme, which brings together the EU, 15 EU Member States and democracy support

stakeholders, fostering cooperation and partner country engagements on issues like people-centred

justice, anti-corruption, civic space and information integrity.

The EU-funded flagship Inter-Pares programme remained at the core of EU support for representative

parliamentary democracy fostering peer-to-peer cooperation on this issue. In 2025, new

parliamentary capacity building partnerships took place with Indonesia, South Africa, Sierra Leone,

and Sri Lanka, and it kept playing a key role in coordinating parliamentary support to Ukraine.

The human rights-based approach is increasingly embedded in sectoral and geographic cooperation.

New guidance was developed, including on how to apply a human rights-based approach in sectors

such as migration and critical raw materials, as well as a Business and Human Rights toolkit.

The EU also continued strengthening its commitment to protecting children in conflict zones. It

implemented updated guidelines on Children and Armed Conflict, supporting prevention, recovery

and reintegration, as well as promoting accountability. These efforts were reinforced through

improved child protection measures in EU missions and ongoing support for the UN Special

Representative on Children and Armed Conflict. In 2025, the EU and UNICEF organised in New York a

third consecutive year of joint dialogues about children in underfunded crises.

2. Delivering on our commitments: promoting EU values and

interests and fostering sustainable development globally

2.1. The Global Gateway strategy

In 2025, the EU further scaled up Global Gateway, its worldwide investment strategy for building

mutually beneficial partnerships and mobilising public and private resources to bridge the global

investment gap and supporting the implementation of the 2030 Agenda and the Paris Agreement. The

2025 Global Gateway Board meeting, chaired by European Commissioner for International

Partnerships Jozef Síkela, discussed ways to accelerate project delivery, enhance cooperation with the

private sector and improve coordination through Team Nationals and the Global Gateway Investment

Hub. At the second Global Gateway Forum, President von der Leyen announced that Global Gateway

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had mobilised over EUR 306 billion in investments, surpassing its original target thanks to the

collective effort of Team Europe, bringing together EU institutions, EU Member States, their financial

institutions, diplomatic networks and the private sector.

Building on this momentum, the Commission strengthened its engagement with the private sector

including through the newly launched Global Gateway Investment Hub(12) for Sub-Saharan Africa, Latin

America and the Caribbean, Asia, Central Asia and the Pacific. The Hub, which is a single-entry point

for EU Member States and their companies, facilitates access to information, opportunities and

support mechanisms across the Global Gateway portfolio, while helping connect businesses with

investment opportunities in partner countries. The Global Gateway Business Advisory Group (BAG)

continued to strengthen cooperation with the European private sector as part of Global Gateway

implementation.

The Global Gateway pipeline of projects and investment packages continued to grow in all regions,

reinforcing the strategy’s operational delivery. The seventh EU-AU summit welcomed the significant

progress on the implementation of the Global Gateway Africa-Europe investment package, notably in

transport corridors such as the Lobito Corridor, regional electricity integration and renewable energy,

as well as local vaccine manufacturing under the MAV+ initiative. The fourth EU–CELAC Summit

welcomed the EU–LAC Global Gateway Investment Agenda, with over 100 projects and around EUR

45 billion committed until 2027, including regional electricity integration, high-performance

computing and the Sargassum Initiative, alongside bilateral cooperation in areas such as critical raw

materials and renewable hydrogen. In Asia and the Pacific, the EU-Central Asia Summit delivered a

EUR 12 billion investment package and a critical raw materials declaration, while the EU-Pacific

Business Forum launched nearly EUR 300 million in investments, focused on climate resilience,

infrastructure and sustainable growth.

In Northern Africa and the Middle East, the Pact for the Mediterranean, adopted in October 2025,

provides the new political framework for Global Gateway in the region. In 2025, EUR 662 million in

investments were approved, expected to mobilise over EUR 7 billion in investments, particularly in

digital, renewable energy and access to finance, bringing total expected mobilisation to EUR 30 billion

in the Southern Mediterranean between 2021 and 2025.

Private sector engagement was reinforced through the launch of a general call for expressions of

interest in December 2025 to identify business opportunities, constraints and support needs in the

region. Preparations for the T-MED Investment Platform also continued ahead of its planned launch

in 2026.

In the Enlargement and Eastern Neighbourhood, investment continued to support structural reforms,

convergence with the EU, and integration into European value chains. A dedicated Connectivity

Agenda was launched in 2025 under the Black Sea strategy, reinforcing transport, energy and digital

links across the region. Between 2021 and 2025, nearly EUR 40 billion in expected investment was

mobilised.

Calls for expressions of interest launched in Ukraine and the Western Balkans attracted more than 700

investment proposals, while dedicated investment conferences helped connect businesses, investors

and public authorities to advance strategic investment projects.

Throughout 2025, the ‘Team Europe’ approach remained central to implementation, to ensure

coordinated delivery of high-impact investment packages. To this end, the Global Gateway flagship

12 https://international-partnerships.ec.europa.eu/investment-hub_enCommission

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list was streamlined from 264 to 256 projects, reflecting a stronger focus on jointly identified political

priorities. Flagship projects remain concentrated in climate and energy (50%), transport (20%), digital

(12%), health (10%), and education and research (8%), with a geographic distribution broadly aligned

with Global Gateway priorities.

Civil society and local authorities continued to be essential partners for Global Gateway, helping to

ensure inclusive participation, uphold its core principles, and contribute to monitoring and

accountability. The Global Gateway CSO and Local Authorities Advisory Platform held eleven

consultations and meetings on a broad range of topics. At partner-country level, the EU has

strengthened its engagement with civil society around Global Gateway, through the fourth generation

of Civil Society Roadmaps (CSRMs) which better anchor civil society participation around EU priorities

and Global Gateway initiatives.

2.2. ‘Team Europe’ approach

In 2025, the ‘Team Europe’ approach remained central to how the EU and its Member States

coordinate a coherent, visible and tangible response to global challenges, including through the Global

Gateway strategy. Team Europe brings together the EU institutions, EU Member States, their

implementing agencies, European and national development banks, development finance institutions

and the private sector. The implementation of Team Europe Initiatives (TEIs) continued, with the

majority of them contributing to Global Gateway (and its flagship projects) and the implementation

of policy initiatives in the Neighbourhood territories, but also covering sectors such as migration,

peace and security, governance or food security.

The EU has also updated guidance on the governance and practice of the ‘Team Europe’ approach,

through the ‘Working Better Together’ document. It provides practical guidance and examples on

promoting a ‘Team Europe’ approach on the ground, including through TEIs, Joint Implementation and

Joint Programming. To ensure continuous engagement by all Team Europe actors, four EU

Development/Enlargement Directors-General meetings were organised and the Commission

continued regular exchanges with networks such as the Practitioners’ Network (PN), the Association

of European Development Finance Institutions (EDFI) and the Joint European Financiers for

International Cooperation (JEFIC).

In May 2025, the Commission launched a strategic evaluation of the ‘Team Europe’ approach. The aim

of the evaluation is to gather detailed insights into how Team Europe operates by assessing its overall

effectiveness and identifying key lessons learned and actionable recommendations to strengthen the

approach and its impact.

As a strategic pillar of the ‘Team Europe’ approach, the Commission continued promoting the set-up

of Team Nationals in EU Member States (domestic whole-of-government coordination mechanisms

for the engagement with the private sector). It also offered technical assistance to support their

conceptualisation and set-up.

Beyond partner countries, the ‘Team Europe’ approach also underpinned work with international

financial institutions. The Commission signed a cooperation arrangement with the World Bank Group

to strengthen coordination around 18 high-impact Global Gateway investment projects and worked

with Council Presidencies to ensure that the EU and its Member States spoke with a single voice in key

Bretton Woods forums. Coordination with European Executive Directors in the World Bank Group and

with Executive Directors at the International Monetary Fund were further developed, consolidating a

shared Team Europe stance on issues such as EU geopolitical and geoeconomic priorities, as well as

the wider international financial architecture. Similarly, as a central player in the UN system and its

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largest financial contributor together with EU Member States, the EU has been consistently advocating

for an ambitious UN80 reform in a ‘Team Europe’ approach, including through Council Conclusions,

EU positioning and statements on the three work strands of the reform process: efficiency gains within

the UN system, mandate implementation review and deeper structural changes.

To further facilitate knowledge sharing in a ‘Team Europe’ approach, the Commission continued the

development of the Team Europe Explorer(13), which is an interactive public tool for visualising

financial data and project-level information on support to partner countries, as well as the

maintenance of the TEIs and the Joint Programming Tracker(14).

2.3. Implementing the 2030 Agenda and other international and European

commitments and policies

The EU remains committed to the 2030 Agenda for Sustainable Development and its Sustainable

Development Goals (SDGs) as the overarching framework of its external action and international

partnerships. Our external action support our partner countries to progress towards the SDGs through

a just, green and digital transition, and stronger resilience.

Conflicts and wars, geopolitical tensions, the environmental crisis, economic shocks, rising inequalities

and increasing fragility continue to severely impede progress on the SDGs. The world is not on track

to achieving them by 2030(15). Implementing the SDGs is a cross-cutting ambition for the Commission:

they are embedded across Commission proposals. The College of Commissioners as a whole is

responsible for advancing towards the SDGs; each Member of the College ensures delivery within their

policy field.

Global Gateway is the EU’s external investment strategy and its main contribution to the SDGs beyond

its borders, supporting partner countries in their progress towards sustainable development. Each

Global Gateway flagship project addresses a range of interconnected SDGs. In countries facing

instability or in complex settings, this is complemented by more traditional engagement, focused on

the population’s most immediate needs. The EU also remains an important player on public policies,

notably through contributions to global initiatives. The EU also supports efforts to make the

multilateral system more fit for purpose, reinvigorate the UN, and reform the international financial

architecture, to make them more agile, efficient and effective, delivering better on SDGs at country

level.

2.4. Fragility response

NDICI−Global Europe resources helped address the root causes of fragility and forced displacement,

by leveraging Global Gateway investments and working across the humanitarian-development-peace

(HDP) nexus, as illustrated by initiatives such as the Green Corridor in the Democratic Republic of

Congo. Efforts focused on reinforcing the resilience of institutions, communities and ecosystems in

the face of conflict, climate change and economic shocks.

Programmes advanced peace, security and resilience in fragile contexts. Rapid Response actions

supported peace, rights and responses to displacement and climate emergencies, including in Haiti,

while actions in Chad, the Central African Republic and South Sudan also helped address the Sudan

13 https://team-europe-explorer.europa.eu/index_en 14 Team Europe Initiatives and Joint Programming Tracker | Capacity4dev 15 UN Sustainable Development Goals Report 2025, p. 4 (https://unstats.un.org/sdgs/report/2025/The-Sustainable- Development-Goals-Report-2025.pdf)

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crisis. The EU also backed efforts to counter violent extremism, tech-enabled crime and terrorism,

including through new initiatives in Asia.

Across fragile contexts, the EU remained engaged on governance, human rights and civic space,

recognising their centrality to peace and sustainable development. In parallel, it supported internal

displaced persons, refugees and host communities along key routes affected by fragility and conflict.

In Syria, the EU is working to address both humanitarian and development needs, for instance

supporting the public health system and strengthening Syrian pharmaceutical value chains to create

jobs.

The EU has strengthened its own and its partners’ ability to work in a conflict sensitive way especially

in highly and extremely fragile contexts, ensuring a ‘do no harm’ approach. It has also improved

coordination across the humanitarian, development and peace sectors, including through Team

Europe frameworks in Ethiopia, Myanmar and Pakistan.

Humanitarian aid interventions also support resilience building through legal assistance regarding

housing, land rights, support on health and education, food and livelihood systems, and water,

sanitation and hygiene (WASH). The EU has also tested catalytic funding to attract support from

development banks and the private sector. Links with social protection systems have also been

successfully developed in several cases.

The SANAD Fund is creating 448 000 jobs across the MENA region, ranking among the largest job-

creating funds in the region, with total of USD 2.3 billion in sub-loans. The Fund targets Jordan,

Lebanon, Palestine, Syria, Iraq and Yemen, as well as Egypt, Tunisia, Algeria and Morocco.

2.5. Policy coherence for sustainable development

In 2025, the EU continued to promote Policy Coherence for Development (PCD) as a long-standing

legal and political commitment to ensure that all its internal and external policies support – or at least

do not undermine – sustainable development and poverty reduction in partner countries.

PCD is anchored in the EU Treaties (Article 208 of the Treaty on the Functioning of the European

Union).

PCD is a key component of the overall EU’s effort to implement the 2030 Agenda for Sustainable

Development and its 17 SDGs across all EU internal and external policies. It is coordinated by central

services, notably through the integration of SDGs in the Better Regulation framework. The

Commission has integrated PCD in its working methods, from upstream policy design under the Better

Regulation agenda (including stakeholder consultations, impact assessments, inter-service

consultations and political validation) to monitoring and evaluation, ensuring a systemic ‘whole-of-

Commission’ approach. PCD also extends to close cooperation with the Council and Parliament

throughout the legislative process, in support of a ‘whole-of-EU’ approach.

In terms of political priorities, PCD efforts in 2025 focused in particular on the European

competitiveness agenda, including initiatives such as the Competitiveness Compass, the Clean

Industrial Deal, the Action Plan on Automotive and forthcoming initiatives in sectors like steel. By

combining grants, budget support, blending and guarantees (notably through EFSD+), the EU seeks to

align investment pipelines with green, digital and inclusive transitions, while reinforcing domestic

resource mobilisation, macro-fiscal stability and sustainable finance in partner countries.

Coherence between climate, biodiversity, critical raw materials and circular-economy policies was

pursued via initiatives such as the Africa–Europe Green Energy Initiative, NaturAfrica, Forest

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Partnerships and support for environmentally and socially sustainable, resilient supply chains of

critical raw materials in line with EU legislation.

The EU also worked to ensure coherence between migration and development policies by supporting

action along key migration routes that address root causes of irregular migration, strengthen

protection and inclusion of refugees and migrants, promote legal pathways and uphold a human

rights-based approach to migration, in line with the EU Pact on Migration and Asylum.

In the digital sphere, implementation of the EU’s international digital strategy and the digital pillar of

Global Gateway linked connectivity investment with regulatory convergence, skills, e-governance and

data protection, promoting a human-centric and rights-based digital transformation.

Governance arrangements for PCD relied on strong coordination within the EU and with Member

States under the ‘Team Europe’ approach. Common results frameworks and guidance supported

consistent implementation.

Engagement with partner governments, civil society, local authorities and young people was

strengthened, aligning EU external action with local priorities, supporting SDG localisation and

fostering whole-of-society approaches to PCD.

2.6. Development effectiveness

Development effectiveness (Busan principles, 2011) is actively promoted in the EU’s development

cooperation to achieve the best sustainable impact through official development assistance funding

and other types of support. The ‘Team Europe’ approach is a key contribution to effectiveness by

pulling together European resources (financial, technical and/or human), to avoid fragmentation and

duplication and increasing transparency. It also provides a common space and framework for

collaboration focused on results, in line with partner country priorities and through inclusive multi-

stakeholder dialogue processes.

Throughout 2025, the European Commission continued to promote and put into practice

development effectiveness principles (country ownership, focus on results, transparency, inclusive

partnerships and mutual accountability) across its international partnerships.

As a founding member of the Global Partnership for Effective Development Co-operation (GPEDC),

the European Commission remained actively engaged in its governance and work programme. It

supported the Partnership analysis on development effectives of 60 countries under the ‘fourth

monitoring round’ (2023-2026), including country-led national dialogues. These dialogues provide an

important opportunity for governments and partner countries to jointly review development

cooperation practices, identify areas for improvement and agree on follow-up actions based on

evidence and country priorities. 2025 represented a key year for consolidating results and preparing

future discussions on the evolution of the effectiveness agenda.

The Commission continued to contribute actively to discussions within the GPEDC Steering

Committee, representing the EU countries, and addressing topics such as the rapidly evolving

international cooperation landscape where effectiveness needs to continue playing a central role

including across new priorities such as Global Gateway, new financing modalities and a broader range

of development actors.

The European Commission also followed emerging international discussions on the topic, including

the 2030 Pact for Effective Development Cooperation, established during the Fourth International

Conference on Financing for Development (FfD4) in Sevilla.

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2.7. Support for multilateralism and addressing global challenges

In 2025, the EU consolidated its role as a leading proponent of effective multilateralism at a time of

escalating geopolitical tensions and attacks on the rules-based international order. The EU pursued its

priorities through the multilateral system while working with partners to reform and streamline

multilateral institutions to make them more inclusive, efficient and effective.

The EU promoted ambition at the 80th UN General Assembly High-Level Week and across a dense

calendar of UN-related events. The EU actively supported the UN80 initiative to strengthen the

effectiveness, cost-efficiency and coherence of the UN system, while preserving the integrity and

balance of its three pillars: peace and security, development and human rights, amid tightening

resources and attacks on the multilateral method. The EU continued to support a strengthened UN

Development System reform, calling for less fragmentation in the field, stronger Country Team

configuration and empowered Resident Coordinators. The EU also continued to support a strong UN

human rights system, built around the Office of the High Commissioner for Human Rights.

The EU played an active role in the G20, helping to secure Leaders’ Declarations and Declarations of

Development Ministers, together with two calls to action on social protection systems and combating

illicit financial flows.

The G7 failed to adopt a Leaders’ Declaration, but reached consensus on statements on critical

minerals, artificial intelligence, quantum technology, wildfires, transnational repression and migrant

smuggling.

Cooperation with the OECD was taken further with the completion of the 2025 OECD-DAC Peer Review

of the EU, through the third EU-OECD Strategic Dialogue, and engagement in the ongoing reform of

the OECD-Development Assistance Committee (DAC).

The EU continued to engage with major bilateral partners. Work proceeded on concluding an

administrative arrangement with the United-Kingdom to establish regular exchanges of information

on development cooperation. Regular technical meetings on priority areas took place with Canada.

Contacts with the United States were impacted by the new administration’s shift in approach to

international aid and the dismantling of USAID.

Under the Samoa Agreement, which brings together 104 signatories, the EU and the Organisation of

African, Caribbean and Pacific States (OACPS) stepped up political cooperation through two joint

statements issued on UN Day(16) and ahead of the Fourth International Conference on Financing for

Development(17), reaffirming also their commitment to the principles of the UN Charter.

The EU also supported partner countries in implementing multilateral agreements on climate change,

biodiversity, the conservation and sustainable use of the ocean, sustainable energy, transport and

circular economy, including through targeted technical and financial assistance.

2.8. European financial architecture for development

The roadmap towards an improved European Financial Architecture for Development (EFAD), updated

in March 2024 following consultations with EU Member States, continued to guide action around four

objectives: (i) strengthening the EU’s policy steer, (ii) enhancing coordination between European and

16 https://www.consilium.europa.eu/en/press/press-releases/2025/10/24/joint-statement-of-the-organisation-of-african- caribbean-and-pacific-states-and-the-european-union-and-its-member-states-on-the-occasion-of-the-united-nations-day/ 17 https://www.consilium.europa.eu/en/press/press-releases/2025/07/01/eu-and-oacps-reaffirm-commitment-to-global- sustainable-development-ahead-of-ffd4/

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multilateral financial actors, (iii) making the architecture more inclusive, (iv) and increasing the

visibility and impact of Team Europe.

Policy steer

In 2025, activities aimed at ensuring full alignment between the geographic strategic priorities, and

the origination of investment proposals continued. Strategic priorities for all regions as established in

relevant policy documents(18) were regularly shared and discussed with European Development

Finance Institutions (EDFIs) to ensure that EU support (in the form of blending or guarantees) was

targeted accordingly.

The EFSD+ Strategic Board continued to provide strategic guidance to establish the overall investment

priorities as regards the use of the guarantee (such as critical raw materials, least developed

countries/fragile settings and others). The 19 June 2025 board meeting discussed the ‘Strategic

Outlook’, including the strategic use of the remaining EFSD+ open architecture guarantee capacity and

specific top-up proposals.

Coordination

In 2025, the Commission continued dialogue with the European Investment Bank (EIB) and the

European Bank for Reconstruction and Development (EBRD) to improve coordination, including

through joint reporting to the Council on EFAD progress.

Cooperation with the World Bank Group (WBG) and the International Monetary Fund (IMF) was

stepped up further. Following several high-level meetings between the Commission and the WBG

Presidents, a cooperation agreement on Global Gateway High-Impact Projects was signed on the

margins of the Global Gateway Forum. In addition, European Commissioners Síkela, Kos and Šuica held

several strategic policy discussions with IMF and World Bank management, including during the

Annual and Spring Meetings.

Engagement with the private sector remained a core feature of EFAD and was significantly stepped up

with the launch of the Global Gateway Investment Hub in October 2025. The Investment Hub enables

the EU private sector to propose investment projects through the relevant Team National. Several

business forums were organised with partner countries, such as the EU-Pacific business forum in Nadi,

Fiji, in September, the EU-Mongolia business forum in Ulaanbaatar in October, the EU-Central Asia

Economic forum in Tashkent in November and the Mexico-EU business forum in October. The

Commission also organised regular targeted information sessions to raise awareness among Team

Europe actors and explain the submission processes.

The Commission’s Directorate-General for Enlargement and the Eastern Neighbourhood (DG ENEST)

manages a dedicated Global Gateway investment hub for investments in enlargement countries and

the Eastern Neighbourhood. In this context, it has launched calls for expression of interest to identify

promising investment proposals, submitted directly by companies. In 2025, calls focused on Ukraine,

the Western Balkans and the Republic of Moldova, with over 700 investment proposals submitted.

Mature investment proposals that are considered strategic, impactful and financially viable are shared

with international financial institutions (IFIs) and may be eligible for a range of guarantee programmes

under the EFSD+. Investment conferences have been co-organised (notably for Ukraine, the Western

18 EU- Africa Global Gateway Investment Package, EU-LAC Global Gateway Investment Agenda (GGIA) the Eastern Neighbourhood related Reform Agendas and Growth Plans and the Connectivity Agenda, the Pact for the Mediterranean for the Northern Africa and the Middle East.

30

Balkans and Montenegro in 2025) to bring together businesses, investors, financial institutions and

government representatives to speed up investments.

speed up he Commission launched a general and open call for expressions of interest for the EU

private sector to signal their interest and set out their needs and constraints in relation to investment

and economic actions in the Middle East and North Africa region. The call will help gather market

intelligence on the needs of the EU private sector, provide inputs into the design of new support

instruments, structure the engagement with the EU private sector, and identify potential investment

opportunities.

In June 2025, the Commission held a joint strategic dialogue with the Practitioners’ Network (PN) of

European development cooperation organisations, the EDFIs and the Joint European Financiers for

International Cooperation (JEFIC). The discussions focused on ideas for addressing the complex global

challenges, in particular in the context of budget cuts, and on preparations for the Fourth Conference

on Financing for Development. Several JEFIC and EDFI members formally joined Global Gateway

flagship initiatives, such as the ASEAN power grid, by signing a joint letter of intent with the European

Commission, the EIB and other European partners.

Enhanced coordination between export credit agencies and development finance institutions

continued within the Commission Expert Group on Enhanced Coordination of External Financial Tools,

which explored how to better align development and export finance, supported by analytical work

and recommendations. A second high-level conference in October 2025 confirmed that a broad range

of stakeholders agreed on the need for a financing tool to support the participation of export credit

agencies (ECAs) in Global Gateway, contributing to both development and EU competitiveness

objectives.

To facilitate coherent design, monitoring and reporting on the results achieved with the support of

EFSD+ guarantees and blending, an updated version of the EFSD+ Results Measurement Framework

was finalised in May 2025. The new version reflects development finance institutions’ comments on

the previous one. The revised framework includes a methodology for integrating indicators related to

the Inequality Marker, better capturingleverage and multiplier ratios and reviewing the technical

assistance components of guarantee agreements.

Inclusiveness

In 2025, EU Delegations across the various regions continued to facilitate upstream discussions with

Team Europe actors, IFIs and other stakeholders. They also played a central role in the organisation of

business promotion events and investment conferences, helping to initiate dialogue and align

priorities, organise outreach and promote cooperation around concrete trade and investment

opportunities.

EU Delegations serve as coordinators/focal points to facilitate upstream discussions within the EFAD

ecosystem on the ground. Their role has been further strengthened through several support activities

aimed at sharing information and promoting exchange of practices/experiences among members of

the EFSD+ focal point network in EU Delegations. Non-resident countries will increasingly be invited.

In 2025, the Commission continued to work closely with European financial institutions on pillar

assessments. Follow-up was made more systematic, with common methodologies shared and applied,

to ensure that findings and recommendations were addressed in a more coherent manner. In parallel,

structured dialogue with EU Member States and their institutions intensified through technical

exchanges and high-level meetings. Overall, in 2025 the Commission strengthened the approach

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initiated in 2024, focusing on institutions with a strong international cooperation mandate and

continuing to provide timely support at all stages of the process, from application to monitoring and

follow-up.

Visibility

April 2025 saw the launch of a second round of reporting on investments mobilised in Global Gateway

priority areas, covering the period 2021-2024. The new reporting updated the overall figure and

provided a more detailed breakdown of investments by region. The total investments mobilised – as

announced at the Global Gateway Forum in October 2025 – come to EUR 306 billion.

High-level Team Europe missions took place in 2025 to promote Global Gateway investments in

Mexico, Central Asia, Southeast Asia and Papua New Guinea. Investment conferences and platforms

were organised for Ukraine, the Western Balkans, Montenegro and Egypt in 2025, bringing together

businesses, investors, financial institutions and government representatives to speed up investment.

2.9. Means of implementation

In 2025, the EU further consolidated the use of a diversified toolbox of means of implementation to

deliver on the 2030 Agenda and the Global Gateway strategy. Under NDICI–Global Europe and related

instruments, grants, procurement, budget support, financial instruments and guarantees, indirect

management and rapid-response tools were deployed in a complementary manner, supported by

robust internal control systems.

Budget support remained a key policy-driven and performance-based tool, promoting

macroeconomic stability, sound public finance management and debt sustainability. It made it

possible to engage with partner countries on important reforms to strengthen regulatory frameworks

and increase institutional resilience, transparency and oversight with the aim of improving the

investment climate, including in fragile and complex settings.

In parallel, the EU expanded performance-based expenditure schemes, notably through reform and

growth facilities for Ukraine, the Western Balkans and the Republic of Moldova, where payments are

made only upon verified delivery of pre-agreed reform steps. This provides a strong incentive for

partner-country-led reforms.

Blending and guarantees under the EFSD+ remained key derisking instruments to promote private and

public investment in Global Gateway sectors. In 2025, 20 new EFSD+ Open Architecture guarantees

were signed with development finance institutions for a total guarantee amount exceeding EUR 3

billion and covering energy, climate, digital, agriculture, micro, small and medium enterprise (MSME)

financing, and currency hedging. Deployment was speeded up, with 63 operations signed in 2025 for

a total amount of around EUR 1.4 billion.

Under the EFSD+ EIB-dedicated investment windows in INTPA regions, 30 operations were signed in

2025 for a total loan amount of EUR 2.1 billion.

Altogether, in 2025, the EFSD+ INTPA Blending Operational Boards issued a positive opinion for a total

EU contribution of EUR 726 million (including fees) through 38 blending operations. These in turn are

expected to leverage around EUR 13 billion in additional public and private financing.

Under the EFSD+ EIB-dedicated investment windows in ENEST regions, 11 operations were signed in

2025 for a total loan amount slightly above EUR 1 billion. This adds up to a total loan amount of

approximately EUR 4 billion under EFSD+ for investment windows 1 and 2 so far which is expected to

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mobilise investments of around EUR 15 billion. Support provided by guarantees is complemented by

blending projects, which are expected to generate around EUR 514 million in investment.

Under the EFSD+ EIB-dedicated investment windows, in MENA regions, five new operations and three

tranches of existing operations were signed in 2025 for a total loan amount of EUR 1.3 billion. This

adds up to a total loan amount of EUR 4.2 billion under EFSD+ for investment windows 1 and 2 so far,

which is expected to mobilise EUR 15 billion. Support provided by guarantees is complemented by

blending, which is expected to generate around EUR 1.5 billion in investment.

In addition, the dedicated EFSD+ investment window 2 with EIB was signed in July 2025 for an amount

of EUR 5 billion which will support investments undertaken by commercial sub-sovereign

counterparts. Across the EFSD and the EFSD+, 51 guarantee agreements worth a total of EUR 7.7

billion were under management, significantly reinforcing the EU’s capacity to support socio-economic

development and crowd in private investment in partner countries. The EU also simplified the

investment framework by streamlining blending procedures, consolidating multiple guarantee

agreements with the same institution and proposing to adjust regulatory reporting requirements,

including by reallocating surpluses from the legacy EFSD to the EFSD+.

These instruments were complemented in 2025 by the gradual implementation of the Global Green

Bond Initiative (GGBI), which helped to deepen partner countries’ sustainable finance architecture

and expand the pool of eligible climate-aligned investments under Global Gateway. The initiative

supported the preparation of high-quality green bond issuance frameworks, improving transparency

through strict use-of-proceeds requirements, alignment with the GGBI green eligibility criteria, and

better impact reporting and verification mechanisms. This facilitated greater interoperability for EU

and international investors, thereby improving the scalability and financial leverage of Global Gateway

investments.

The EU has also supported stronger engagement with civil society in INTPA partner countries, where

relevant. This has included stronger capacity-building for civil society organisations at country level

through the Civil Society Thematic Programme. In addition, e-learning tools have been developed,

including a multilingual course on how to respond to calls for proposals, which is available through the

INTPA Academy(19).

Technical assistance, knowledge hubs and institution-building tools, such as TAIEX and Twinning,

supported regulatory convergence, alignment with the EU acquis, and capacity for planning and

implementing investments. In 2025, TAIEX was strategically re-oriented towards targeted support for

alignment with the EU acquis and Reform Agendas, with 576 interventions delivered for

neighbourhood and enlargement partners, and roadmaps developed for several countries. Foreign

policy facilities and rapid-response and resilience actions under the NDICI–Global Europe

rapid-response pillar complemented longer-term instruments by enabling swift interventions in crises

and fragile contexts, particularly in situations of conflict, forced displacement and climate shocks.

In 2025, the TAIEX programme launched 50 activities in the MENA region, delivering targeted technical

cooperation across a broad range of sectors. These initiatives focus on regulatory alignment, capacity-

building, and institutional strengthening, covering: (i) sustainable energy and environmental practices

(such as renewable energy, the circular economy, and biodiversity conservation); (ii) justice and

governance reforms (including constitutional processes, electoral transparency, and anti-corruption

measures); and (iii) economic and financial stability (encompassing fiscal policy, policies on anti-

money laundering and combating the financing of terrorism (AML/CFT), and trade compliance).

19 https://international-partnerships.learning.europa.eu/

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Additional priorities include digital transformation, food safety and agricultural innovation, labour

protection, and statistical and analytical capacity-building. Collectively, these efforts boost

institutional resilience, build up technical expertise and ensure alignment with international

standards.

2.10. Mobilisation of the NDICI−Global Europe cushion

In 2025, the European Commission mobilised EUR 871 million of NDICI−Global Europe’s emerging

challenges and priorities cushion. This amounted to 70% of the budget commitment appropriations

for 2025, and 63% of the available commitment appropriations, taking into account the amount of the

cushion carried over from 2024 to 2025.

As in previous years, the cushion was mobilised to support Syrian refugees in Türkiye, with an amount

of EUR 423 million, made available by redeploying availabilities freed up within the NDICI cushion

following revision of the multiannual financial framework. In addition, EUR 60 million was mobilised

to ensure EU support for the political transition in Syria following the fall of the Assad regime.

To deliver on the Global Gateway strategy, EUR 250 million was made available to the EIB to scale up

investments in partner countries in Latin America and the Caribbean, and in Asia and the Pacific.

The cushion also contributed to the EU pledge of EUR 65 million in the context of to the seventh

replenishment of the Global Fund to fight AIDS, Tuberculosis and Malaria for the period 2023-2025.

In the context of the Comprehensive Strategy for Energy Independence and Resilience agreed with

the Republic of Moldova, EUR 23 million was mobilised for the provision of short-term support in

response to the energy crisis in the country.

As provided for in Regulation (EU) 2023/588 of the European Parliament and of the Council(20), the EU

Secure Connectivity programme received a contribution from the cushion of EUR 50 million through

the annual budgetary procedure.

20 OJ L 79, 17.3.2023, pp. 1–39, https://eur-lex.europa.eu/eli/reg/2023/588/oj/eng

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3. Thematic overview

Working together towards the SDGs and results achieved with EU support

In 2025, the EU remained committed to keeping the 2030 Agenda and the 17 Sustainable

Development Goals (SDGs) at the heart of its external action. Implementing and achieving the SDGs is

a cross-cutting ambition of the European Commission: the College of Commissioners is collectively

responsible for progress.

EU external action contributed to advancing sustainable development in partner countries, supporting

climate and environmental action, sustainable and inclusive growth, digital transformation, human

development, good governance, peace and respect for human rights.

The Global Gateway strategy, implemented through a “Team Europe” approach, is at the heart of this

effort. Its large-scale transformative projects advance multiple SDGs simultaneously, spanning

renewable energy, sustainable transport, digital connectivity, food systems and health.

Performance and accountability were underpinned by the Global Europe Results Framework and the

EU Results Framework, which structure how outputs and outcomes are measured and reported. This

systematic results-based culture, together with strong internal control and risk-based assurance,

enables the EU to demonstrate how its external action helps partner countries make tangible progress

towards the SDGs.

3.1. Delivery on the spending targets

In 2025, the EU continued to deliver on the targets set under NDICI–Global Europe and related policy

commitments.

Over 2021-2025:

- 98% of NDICI–Global Europe commitments were eligible as Official Development

Assistance and the Commission expects to reach the target of at least 93% over 2021-

2027.

- 26% of total commitments under NDICI–Global Europe contributed to climate

objectives. The positive trend observed since 2021 continued in 2025, with NDICI–

Global Europe annual contribution to climate objectives raising to 28% in 2025.

Although this demonstrates an improvement in the performance over the years, further

efforts are required to meet the 30% target over 2021-2027.

- 30% of ODA-eligible commitments were dedicated to social inclusion and human

development, slightly decreasing from 32% over 2021-2024. This remains in line with

the positive trajectory observed since 2021 and should allow the Commission to achieve

the 20% target over 2021-2027.

- 17% of the amounts of all adopted actions under NDICI–Global Europe contributed to

support migration management and address forced displacement. If sustained, the

current trajectory will result in the Commission exceeding the target of indicatively 10%

over 2021-2027.

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- 24% of the amounts of all adopted actions from the geographic programmes

contributed to human rights, democracy and good governance and 65% to inclusive and

sustainable growth for human development. The Commission is therefore well on track

to achieve the targets set in the delegated act supplementing the NDICI–Global Europe

regulation, of respectively 15% and 45%.

As regards the multiannual financial framework (MFF) target on biodiversity(21), after reaching a

record high of 11% in 2024, the annual contribution of NDICI–Global Europe to biodiversity

decreased to 8% in 2025. While this still represents a significant increase compared to the 5%

contribution in 2021, efforts will need to be sustained to significantly contribute to the MFF target

in 2026 and 2027. As regards IPA III, the annual contribution to biodiversity stood at 4% in 2025.

On gender equality, in line with the third Gender Action Plan III 2021-2027, the EU maintained high

levels of gender-responsive actions. Over 2021-2025, 83% of adopted actions under NDICI–Global

Europe had gender as a principal or significant objective, with 4% of those actions having gender

equality and women’s and girls’ rights and empowerment as a principal objective. While these

figures demonstrate progress in terms of gender mainstreaming in the implementation of NDICI–

Global Europe, further efforts will be required to secure the achievement of both targets over 2021-

2027.

Finally, in 2025, actions under the responsibility of the Commissioner for International Partnerships

continued to deliver on education, with 13% of commitments dedicated to this political priority (12%

over 2021-2025).

3.2. Human development

3.2.1. SDG 1 – Reduced poverty

Figure 2. SDG 1 – interlinkages with other goals

Figure 2 above shows the main synergies between SDG 1 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 10 on reduced inequalities and SDG 16

on peace, justice and strong institutions.

21 See Recital (49) of NDICI-Global Europe and Recital (25) of IPA III regulations.

36

In 2025, the EU continued to place poverty eradication at the heart of its external action, in line with

Article 208 TFEU and the 2030 Agenda. Global trends remained challenging: around 10.3% of the

world’s population (nearly 800 million people) still lives below the extreme poverty line of USD 3 per

day. At the same time, inequalities are widening both within and between countries. Progress on

global human development has slowed to its weakest pace in 35 years (excluding crisis years)(22).

Furthermore, while global social protection coverage reached a historic milestone of more than 50%

of the global population in 2024, almost four billion people (including nearly two billion children) still

lack access to any form of social protection(23).

In 2025, the Commission took part in major global events that strengthened the EU’s commitment to

poverty reduction. These included the FfD4 Sevilla Commitment(24), which stressed sustainable

financing and reforms to support development, and the Second World Summit for Social

Development, whose Political Declaration(25) reaffirmed that poverty eradication, decent work, and

social integration are key pillars of social development.

The Commission has translated these political commitments into concrete resource allocations.

Between 2021 and 2024, 8.1% of EU-financed Official Development Assistance (ODA) (over EUR 26.6

billion) directly supported SDG 1 on eradicating poverty, as part of the wider scope of EU-financed

ODA, where all SDGs are enablers of poverty reduction. Taking a multidimensional view of poverty,

the Commission is on track to meet the NDICI−Global Europe target of allocating at least 20% of ODA

to social inclusion and human development in 2021-2027. By 2025, 30% of EU ODA had been directed

to areas such as healthcare, education and training, nutrition, water and sanitation, decent work, and

universal social protection.

In 2025, Global Gateway investments and performance-based facilities further improved poverty

reduction outcomes by supporting public services, SME development and decent work. The Ukraine

Facility, the Western Balkans Facility and the Moldova Facility disbursed assistance to maintain

macroeconomic stability, protect basic state functions and create fiscal space for social spending and

public services. In the Eastern and Southern Neighbourhood, the EU supported SMEs and jobs creation

through the EU4Business and SANAD Fund, with a strong focus on women, young people and rural

clients. In fragile and conflict-affected settings such as Yemen and the Lake Chad Basin, EU

programmes restored public services for millions, supported livelihoods and strengthened resilience

to shocks, thereby contributing to SDG 1.5 on reducing vulnerability and building resilience.

Addressing poverty and supporting inclusive transitions on several continents is an important area of

engagement for EU Member States. The Team Europe Initiative (TEI) on jobs through trade and

investment in the Middle East and North Africa promotes job creation, skills development,

entrepreneurship, and women’s and young people’s economic empowerment. Other relevant

examples are the TEI on inclusive societies in Latin America and the Caribbean and the TEI on social

protection in Sub-Saharan Africa. Alongside efforts to boost the income-generating potential of

investments, social protection remains a critical policy instrument for eradicating poverty. The EU

continues to support the strengthening of national social protection systems across 35 countries. In

2025, the EU-funded Digital Convergence Initiative(26) entered its full implementation phase, launching

22 https://www.undp.org/eurasia/press-releases/human-development-report-2025 23 https://www.ilo.org/resource/article/world-social-protection-report-2024-26-figures 24 https://financing.desa.un.org/post-news/ffd4-outcome-document-sevilla-commitment-compromiso-de-sevilla-adopted 25 https://social.desa.un.org/world-summit-2025/documents/doha-political-declaration-agreed-text-090525 26 https://spdci.org/

37

operations in 18 countries and setting up a larger global HelpDesk and an Artificial Intelligence Hub to

advance interoperability across social policy systems.

The Commission has also placed increased emphasis on monitoring the impact of actions in areas that

underpin poverty reduction. For instance, through the Inequality Marker (I-Marker) developed to

assess how EU interventions benefit the poorest 40% of the population and the most vulnerable

groups (for more details see section 3.2.7). Through the STRENGTHEN programme(27) implemented

with the International Labour Organization, the Commission is also performing employment impact

assessments − a key driver of higher incomes and poverty reduction.

3.2.2. SDG 2 – Zero hunger

In 2025, ending hunger, achieving food security and improved nutrition and promoting sustainable

agriculture remained central objectives of EU external action. The resilience of global food systems

was further strained by conflict, climate shocks and trade uncertainty, and in many fragile contexts

across the globe hunger levels rose. Acute food insecurity reached a record level of 22.9%, affecting

over 266 million people in 47 countries and territories. For the first time since the Integrated Food

Security Phase Classification (IPC) system was created, famine was confirmed simultaneously in two

areas: Gaza and Sudan. The situations of greatest concern were registered in Sudan, Gaza, South

Sudan, Haiti, Mali and Yemen.

The EU responded by combining humanitarian assistance and longer-term investments in sustainable

and resilient agrifood systems. In 2025, humanitarian efforts to counter the global food crisis included

around EUR 600 million in food and nutrition assistance from a humanitarian aid budget of

EUR 2.56 billion, including major allocations to crises such as Gaza/occupied Palestinian territory,

Sudan and the regional dimensions of the Sudan crisis, Yemen, the Central Sahel and the Horn of

Africa. In Gaza and Sudan, substantial EU-funded operations, including humanitarian airbridges and

logistics support via ReliefEU, helped deliver life-saving food and nutrition supplies despite severe

access constraints. The EU also updated its Humanitarian Food and Livelihood Assistance (HFLA) Policy

and continued integrating nutrition services into basic healthcare in line with World Health

Organization (WHO) guidance on malnutrition and wasting.

Through NDICI−Global Europe, the EU stepped up support for sustainable agrifood systems. In 2025,

actions such as DESIRA+ promoted the use of “forgotten crops”, improved soils and achieved better

access to local and regional markets, while integrating agroforestry approaches in cocoa, coffee and

cashew value chains. The EU also boosted public and private investment flows towards sustainable

and resilient agrifood systems and scaled up support for trade in deforestation-free products under a

Team Europe Initiative on deforestation-free value chains in over 26 producing countries in Africa,

Latin America and Asia.

The EU launched the New Aquatic Value Chains (NAVAC) programme, funded by the EU and

implemented by the FAO, in collaboration with the Technical University of Denmark (DTU). The

programme aims to increase the availability of nutritious and safe aquatic foods for vulnerable

populations, while strengthening local economies through innovation in aquatic value chains. The

NAVAC programme builds on the extensive experience in value chain analysis, including examples such

as the FISH4ACP programme, which focused on enhancing the productivity and competitiveness of

27 https://www.ilo.org/projects-and-partnerships/projects/strengthening-impact-employment-sector-and-trade-policies- strengthen

38

aquatic value chains in 12 African, Caribbean and Pacific countries, ensuring that economic

improvements go hand in hand with environmental sustainability and social inclusiveness.

Global Gateway investments played a growing role in supporting food systems by financing

infrastructure and innovation, including irrigation systems in Somalia, the modernisation of the

Douala-N’Djamena corridor, and agricultural value chains along the Lobito Corridor, in order to

improve productivity, connectivity and market access for farmers. New approaches to diversified and

nutrition-sensitive food systems were promoted with the launch of the “New Aquatic Food Value

Chains for Sustainable Healthy Diets in Fragile Contexts” programme, which encourages sustainable

use of a wider range of aquatic species, reduces pressure on overexploited stocks, and supports food

systems that value ecosystem diversity.

The EU has continued to support Yemen’s economic resilience through the “Strengthening

Institutional and Economic Resilience” project. The project is helping to establish export centres to

improve market access and ensure long-term sustainability in key sectors such as fisheries, agriculture

and apiculture, thereby sustain thousands of livelihoods.

At multilateral level, the EU and its Member States reaffirmed their leadership on food security and

nutrition, notably at the Nutrition for Growth Summit in Paris in March 2025, where Team Europe

renewed its commitment to tackling the global malnutrition crisis. Overall, in 2025 the EU’s combined

humanitarian and development interventions continued to address hunger while investing in

sustainable, climate-resilient and inclusive agrifood systems, thereby underpinning the EU’s

contribution to SDG 2.

Almost 23 million women and children under the age of five benefited from EU-supported nutrition

programmes under the previous multiannual financial framework (MFF 2014-2020). As results under

the current MFF are only beginning to materialise for projects launched between 2022 and 2024,

under the current MFF 2021-2027, more than 200 000 women and children have benefited(28).

Roughly 24 million food‑insecure people received EU assistance under the previous

MFF, as did an additional 200 000 under the current MFF(29).

EU‑supported interventions reached almost 23 million smallholders under the previous

MFF. Under the current MFF, more than 250 000 smallholders have been reached so

far(30).

Nearly 4.8 million hectares of agricultural and pastoral ecosystems were placed under sustainable

management practices with EU support under the previous MFF(31).

28 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025. 29 Ibid. 30 Ibid. 31 Results for the previous MFF (2014-2020) are presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

39

3.2.3. SDG 3 – Good health and well-being

Figure 3. SDG 3 – interlinkages with other goals

Figure 3 above shows the main synergies between SDG 3 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 10 on reduced inequalities, and SDG 16

on peace, justice and strong institutions.

In 2025, in line with the Global Gateway strategy and the EU Global Health Strategy, the EU further

consolidated health as a core pillar of its external action through regional and bilateral programmes

and contributions to key multilateral partners. The focus remained on strengthening health systems

and advancing universal health coverage, including women’s health and sexual and reproductive

rights. In a context marked by cuts to ODA and growing needs in fragile and conflict-affected countries,

the EU remained a reliable and influential partner, supporting human development with a strong

health component through NDICI−Global Europe.

The EU speeded up disbursements under the seventh replenishment of the Global Fund to fight AIDS,

Tuberculosis and Malaria, co-hosted the Gavi High-level Pledging Summit and used its Board role in

Global Health Initiatives, including Gavi and the Pandemic Fund, to mitigate the impact of funding cuts

on partner countries while contributing to strategic debates on governance and effectiveness. The EU

sustained funding for the World Health Organization (WHO), including the Universal Health Coverage

Partnership (UHCP), and launched a reflection process with EU Member States and like-minded

partners to shape its position on the global health architecture and the subsequent process hosted by

the WHO. This served to underline EU leadership in global immunisation efforts and its commitment

to safeguarding essential health services amid fiscal pressures. Local manufacturing of health products

in partner countries remained a priority. The Manufacturing and Access to Vaccines, Medicines and

Health Technologies (MAV+) Initiative(32) mobilised more than EUR 2 billion in investments, including

guarantee-based transactions with pharmaceutical companies such as Biovac. The initiative also

supported the enabling environment in terms of regulatory strengthening, skills(33) and research. These

investments have contributed to partnerships with EU companies, equitable access to essential health

products, geographic diversification of supply chains and health emergency preparedness.

32 https://global-gateway-forum.ec.europa.eu/news/global-gateway-eu-scales-local-manufacturing-and-access-health- products-africa-advancing-mav-2025-10-10_en 33 https://capacity4dev.europa.eu/library/mav-factsheet-overview-project-annex_en?listing=group_library&refgid=250133

40

Engagement with the African region remained strong in 2025. In early November, the high-level

steering meeting on the AU-EU Health Partnership brought together 15 countries and 11 institutions

from the African continent.

Throughout 2025, the EU maintained meaningful dialogue with civil society, notably through the

Global Health Policy Forum in May. At regional level, the EU supported health system resilience in the

Western Balkans including by advancing all-hazard emergency preparedness, health financing reform

aimed at ensuring universal coverage, and the restoration of immunisation levels following the COVID-

19 pandemic.

Health interventions remained an essential life-saving component of humanitarian aid action, in the

face of growing global needs and a shrinking funding environment. In 2025, the EU allocated around

EUR 400 million to humanitarian health, a record amount. This funding supported health systems

(where possible), and ensured access to basic medical care in emergencies, including epidemic

response, maternal and newborn healthcare, trauma care and mental health and psychosocial

support. It was critical in crises such as Syria, Gaza, Afghanistan, Yemen, Sudan, the Democratic

Republic of the Congo and Ukraine, where conflict, attacks on health infrastructure and large-scale

displacement threatened progress towards SDG 3. A further significant achievement in 2025 was the

launch of the new humanitarian health policy guidelines. Humanitarian efforts were complemented

by the work of ReliefEU and the Union Civil Protection Mechanism to address several epidemic

outbreaks, including cholera, Ebola and yellow fever.

Some 35 million women of reproductive age used modern methods of contraception

with EU support under the previous multiannual financial framework (MFF 2014-2020).

Under the current MFF 2021-2027, the figure is 25 million, as results are only beginning

to materialise for projects launched between 2022 and 2024(34).

Around 300 000 children have been fully immunised with EU support under the current MFF.

34 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

41

3.2.4. SDG 4 – Quality education

Figure 4. SDG 4 – interlinkages with other goals

Figure 4 above shows the main synergies between SDG 4 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 8 on decent work and economic

growth, and SDG 10 on reduced inequalities.

The EU further consolidated its role as a leading global supporter of quality education as a human right

and as a driver of sustainable development. Education remained a key priority, with EU investments

continuing at a level which should ensure achievement of the target over 2021-2027. Support reached

more than 70 countries and covered the full education cycle, prioritising system strengthening and

skills for employment.

Under the Global Gateway strategy, education and skills were defined as the key to ensuring that

investments in digital, green and sustainable infrastructure translate into decent jobs and inclusive

growth. The Opportunity-driven Skills and Vocational Education and Training in Africa and VET Toolbox

II helped align curricula and training offers with labour market needs and concrete employment

opportunities. Six VET projects were rolled out in a number of African countries to support job creation

to match training with employment creation. Regional exchanges on public-private partnerships for

VET were organised in Angola, the Democratic Republic of the Congo, Uganda and Namibia.

Erasmus+ contributed to capacity building and skills development beyond Europe (in all regions

covered by this report). This was done through capacity building projects in the field of Higher

Education, Vocational Education and Training and informal education (youth), for an amount of EUR

177.1 million in 2025. In addition, the programme financed scholarships for higher education staff and

students amounting to EUR 260.9 million.

In the Enlargement region and the Eastern Neighbourhood, education and skills featured prominently,

with the performance-based facilities specific sections to skills. Under the Western Balkans Reform

and Growth Facility, Albania completed a reform step in the area of social capital by introducing

diversified active labour market policies targeting jobseekers and the long-term unemployed. In the

Eastern Neighbourhood, the “Supporting Education Reforms in the Eastern Partnership region” action

promoted education reforms of the governance and financing of education systems, improving their

equity, gender equality, quality and performance. The newly launched Mediterranean University

under the Pact for the Mediterranean aims to boost regional university cooperation and make the

Mediterranean a hub for transnational higher education and research.

42

The Regional Teachers’ Initiative for Africa was rolled out in 27 Sub-Saharan African countries,

providing technical assistance for policy reforms in 14 countries. It also piloted professional

development models across 14 projects in 12 countries and generated evidence for better teacher

governance through six Africa-Europe research partnerships. These investments helped strengthen

the quality and inclusiveness of basic education systems, including in fragile areas, and complemented

support provided through the Global Partnership for Education and the Education Cannot Wait, which

together reached millions of children.

Education in emergencies was further strengthened against a backdrop of decreasing humanitarian

funding and increasing violations of children’s rights in conflicts. Education is a lifeline for more than

234 million children and young people affected by crisis worldwide. The EU upheld its commitment to

dedicate 10% of the initial annual humanitarian aid budget to education in emergencies. In 2025,

funding exceeded EUR 180 million. Protection remained a key priority, with about 15% of the

humanitarian financial allocation going towards protection activities, reflecting the growing number

of grave violations against children in armed conflicts.

The participation and empowerment of young people were further integrated into education and skills

initiatives. Young people provided advice on policies and programmes in more than 50 countries, and

European Commissioner for International Partnerships Jozef Síkela held a Global Gateway Policy

dialogue, ensuring that young people’s perspectives inform the design of education and skills

interventions. Education support was also increasingly aligned with the gender equality objectives of

the EU Gender Action Plan as per an evaluation, which called for transformative impact for women

and girls in key sectors.

Around 2.9 million primary- and secondary-school pupils have been enrolled in

education with EU support under the current multiannual financial framework (MFF).

3.2.5. SDG 5 – Gender equality

Figure 5. SDG 5 – interlinkages with other goals

Figure 5 above shows the main synergies between SDG 5 and a broad range of other significant SDGs

(numbers on the right), notably SDG 8 on decent work and economic growth, SDG 10 on reduced

inequalities, and SDG 16 on peace, justice and strong institutions.

43

In 2025, the EU continued to play a major role in promoting gender equality worldwide. The EU

systematically integrated gender equality objectives in its portfolio. The share of actions with gender

equality as a significant or principal policy objective increased from 68% in 2020 to about 79% in 2021-

2025. For NDICI−Global Europe, between 2021 and 2025, the share was 83%, and of those, 4% have

gender equality as their principal target. The EU also extended the use of gender and inequality

markers to EFSD+ operations.

The EU also promoted women’s economic empowerment through various actions, in North

Macedonia, for example, the EU4Gender Equality programme supported women’s participation in the

STEM and digital sectors, while the Team Europe Initiative on women in public ICT and services

promoted women’s leadership in the digital transformation.

Gender equality objectives were integrated in support for universal health coverage with a focus on

women’s health and local manufacturing of health products in partner countries.

In fragile and conflict affected settings, the EU worked closely with women’s organisations and youth

organisations to build resilience, promote peace and safeguard civic space. EU support for the Global

Survivors Fund secured reparations for survivors of conflict-related sexual violence and drove national

policy breakthroughs, such as Ukraine’s world-first wartime reparation law, and strengthened the

global reparations ecosystem. In politically constrained environments, the EU maintained the space

necessary to continue advocating for human rights, including women’s and girls’ rights. This included

a new flagship programme for Afghanistan applying a “for women, by women” approach to basic

needs and livelihoods (EUR 83 million).

The EU established new partnerships to eradicate gender-based violence, mainly through the second

phase of the Spotlight Initiative. New programmes were launched in Ecuador, Uganda, Sierra Leone

and Liberia. In March 2025, the African Union, the UN, and the EU signed a declaration of intent on a

second phase of the Spotlight Initiative Africa Regional Programme. Across the Eastern Partnership

countries, the EU 4 Gender Equality programme supported the prevention of gender-based violence.

In Ukraine, the EU provided psychosocial support services. The ACT programme promoted the

priorities of women’s rights organisations in the preparation of standards and policy frameworks to

prevent and respond to violence against women and girls. To strengthen prevention mechanisms, the

regional programme EU 4 Social Inclusion in the Western Balkans and Türkiye boosted the data

collection capacities of national institutions regarding violence against women.

In 2025, the EU increased its funding for sexual and reproductive health and gender-based violence

response to EUR 114 million, from a previous average of EUR 70 million per year. Around 15% of the

EU humanitarian financial allocation went towards protection interventions that provided holistic

support to survivors, combining medical care, psychosocial assistance and emergency livelihoods.

Approximately 20 milllion people benefited from EU‑funded programmes to counter

sexual and gender‑based violence under the previous multiannual financial framework

(MFF) (35).

35 Results for the previous MFF (2014-2020) are presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

44

3.2.6. SDG 6 – Clean water and sanitation

The world remains off-track to achieve SDG 6. In 2024, 2.1 billion people still lacked access to safely

managed drinking water, and almost half of the global population lacked access to safely managed

sanitation. Against this backdrop, the EU continued to scale up support for sustainable water and

sanitation in line with the European Water Resilience Strategy(36) adopted in 2025, including through

long-term investments under the Global Gateway and humanitarian assistance in crises.

In 2025, the EU continued to deliver on its commitment under the Water Action Agenda (WAA) to

support access to an improved drinking water source and/or a sanitation facility for 70 million people.

Global Gateway investments and activities related to access to water, sanitation and hygiene were

implemented in around 50 countries, with the private sector mobilized to extend this further. The

Climate Investor 2 – financing water, sanitation and oceans infrastructure in emerging markets –

surpassed its final close target with USD 1.065 billion mobilized thanks to a EUR 205 million EFSD+

guarantee from the EU, making it the largest climate adaptation infrastructure fund focused on

emerging markets globally. It had nine projects under construction or in operation, including in Viet

Nam, the Philippines and South Africa, and 27 projects under development in 2025. Further blending

operations and guarantees were developed or deployed in Kenya, Tanzania, Ecuador, Brazil, the

Dominican Republic, Bangladesh, Papua New Guinea and India to expand access for underserved

communities.

In the Mediterranean and Gulf regions, the EU continued its long-standing commitment to managing

scarce water resources. It began designing a regional project to support peer-to-peer exchanges

among basin organisations and integrate earth observation into water management, in line with the

Union for the Mediterranean water agenda. In Jordan, the EU supported sustainable water

management to address structural water scarcity, with the Aqaba-Amman Water Desalination and

Conveyance project, which is a Team Europe flagship initiative.

The EU also made progress on its WAA commitment to improve transboundary cooperation. Through

policy outreach and Team Europe initiatives on transboundary water management in Africa and

Central Asia, the EU helped extend the global reach of the Water Convention, developed three

regional projects and launched a peer-to-peer programme for water basin management.

The EU continued supporting multilateralism on water, contributing to the implementation of the UN

System-Wide Strategy for Water and Sanitation and to the preparations for the 2026 UN Water

Conference.

Humanitarian water, sanitation and hygiene (WASH) interventions remained essential in emergencies.

The EU intensified its efforts to promot access to WASH services during humanitarian crises.

Environmental considerations were integrated into WASH-related interventions, while the human

right to water and sanitation remained a priority thanks to the implementation of the EU human rights

guidelines on safe drinking water and sanitation. In Yemen, where years of conflict have devastated

basic services, EU humanitarian aid – including via the EU Humanitarian Air Bridge (EUHAB) – delivered

critical medical and WASH supplies to populations facing severe food insecurity and high levels of

malnutrition, partly driven by unsafe water and poor sanitation. In Venezuela, EU funding totalling

over EUR 52 million helped sustain access to clean water and health services in an otherwise severely

underfunded response.

36 COM(2025) 280 ; https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52025DC0280

45

23 million people had gained access to improved drinking water sources and/or

sanitation facilities with EU support under the previous multiannual financial

framework (MFF 2014-2020). To the end of 2025, 5.3 million people had gained access,

as results under the current MFF 2021-2027 are only beginning to materialise for

projects launched between 2022 and 2024 (37).

3.2.7. SDG 10 – Reduced inequalities

Reducing inequalities is one of the defining challenges of our time. Given how inequalities intersect

with all dimensions of sustainable development, the EU continued building a multifaceted response,

anchored in its Global Gateway strategy.

The Global Gateway strategy contributes to addressing inequalities by mobilising public and private

investments in priority sectors − health, education and research, digital, energy and transport − where

investment can create decent work, expand access to essential services and connect underserved

communities. This is reinforced by a 360-degree approach, through which the enabling environment

is built around each investment, encompassing regulation, human rights (including labour rights),

progressive fiscal policies, social protection, skills development, gender equality, respect for

environmental, social and governance standards, and encouraging partnership with civil society and

local authorities. Through the Team Europe equality flagship projects, the EU is tackling inequality

where it represents both a significant challenge and a political priority. From digitalisation in Kenya to

decent work in Bangladesh, these initiatives are delivering transformational change. This logic has also

been extended to fragile contexts, where the risk of exclusion is greatest: Global Gateway flagship

projects are currently being implemented in more than half of the world's fragile countries (41 out of

61), including 10 classified as highly or extremely fragile.

In 2025, the EU continued to implement concrete policy measures and programmes to drive inequality

reduction. The Gender Action Plan III advances the full, equal and meaningful participation of all

women and girls, while the human rights-based approach keeps rights holders at the very heartof EU

cooperation. With the first-ever Youth Action Plan in external action, the EU is empowering young

people to lead global change by engaging, equipping and connecting the next generation. In 2025, the

EU reaffirmed its commitment to disability inclusion in external action by joining the Amman-Berlin

Global Disability Summit Declaration. The EU achieved disability inclusion in 38.1% of its new actions

funded under the NDICI and 38% of its new actions funded under the IPA III instrument between 2021

and 2024, as measured by the OECD Disability Marker.

The Inequality Marker is both a benchmarking and a policy tool, which ensures that inequality

reduction is assessed systematically across all of the Commission’s Dirctorate-General for

International Partnerships (DG INTPA) funded actions, including Global Gateway priorities. Since June

2025, its application has been extended to EFSD+ operations (starting with blending). 62% of new DG

INTPA actions committed in 2024 contribute to reducing inequalities, up from 59% in 2023. The

Distributional Impact Assessment tool, already applied in Paraguay, Djibouti, Bhutan, Madagascar,

37 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

46

Benin and Uganda, complements the Inequality Marker by providing a rigorous econometric

methodology to verify whether interventions effectively reach the bottom poorest 40% of the

population.

3.2.8. Other major achievements

Delivering on the Youth Action Plan in external action included rolling out Youth Sounding Boards in

more than 50 EU Delegations and in Brussels HQ.

The EU has supported youth inclusion in various regional dialogue processes. These dialogues have

highlighted Global Gateway’s potential to empower young people by creating opportunities through

investments in skills, decent jobs and inclusion.

The Youth Empowerment Fund supported young people by providing accessible, low-barrier funding

for approximately 1 900 initiatives led by young people in their communities. The Africa-Europe Youth

Academy expanded learning opportunities and exchanges for young people seeking to strengthen

their leadership skills and build networks.

Youth initiatives in the Mediterranean supported political participation, media skills, civic leadership

and active citizenship through programmes such as Mediterranean Youth in Action, EU Media

Connect, EU Jeel Connect and the Young Civil Society Leadership Programme. In 2025, EU Jeel

Connect’s 440 members delivered 61 initiatives, reaching over 5 000 people.

Youth also played a key role in Africa-Europe Partnerships for Culture, which connected artists and

cultural networks across Europe, Sub-Saharan Africa and the Arab region. Programmes such as Halaqat

and Ecologies of Culture supported exchanges, cultural networks and Arab cultural actors, while the

Olive Branch film award promoted shared values at the Cinemamed festival in Brussels.

In 2025, the EU adopted its Pact for the Mediterranean, setting out the policy framework to support

youth empowerment and highlight cultural sites as drivers of economic growth, social inclusion, and

regional revitalisation through cross-sector cooperation, sustainable heritage management, and anti-

trafficking efforts. Actions to implement the Pact are being launched in 2026.

Under thematic programmes (CSO and HRD), the entire 2024 budget allocated to MENA countries

(EUR 24 064 580.24) has been contracted to the benefit of civil society organisations. Under bilateral

programmes, EU countries’ road maps for engagement with civil society set out priority areas for

support and dialogue. A survey has been launched to map needs in terms of updating and design.

Under the regional programming, the decision action “Safeguard of basic rights and democratic

governance in the Southern Neighbourhood for 2025-2027” (EUR 73.7 million) has been adopted. The

initiative combines support to the regional civil society facility, support to civil society in Morocco and

Tunisia, and contributions to the European Public Integrity Foundation (EUPI) (Middle East Peace

process) and the European endowment for democracy.

Civil society organisations were also consulted during the drafting of the Pact and the EU civil society

strategy.

3.3. Green Deal

3.3.1. SDG 7 – Affordable and clean energy

In 2025, the EU continued to contribut to SDG 7 in its external action, focusing on renewable energy

generation, energy efficiency and regional energy connectivity, in line with the European Green Deal

and the Global Gateway strategy.

47

In Africa, the implementation of the Africa-Europe Green Energy Initiative progressed. EU investments

supported solar, hydro and wind power projects alongside transmission and distribution

infrastructure, which improved access to clean electricity for households and businesses and reduce

reliance on fossil fuels. Progress was also made on energy efficiency, clean cooking, green hydrogen

and derivatives. In addition, President von der Leyen reaffirmed the EU’s commitment to SDG 7 in

Africa by co-launching the “Scaling up Renewables in Africa” campaign which ran from November 2024

to November 2025 and raised EUR 15.5 billion, including over EUR 15.1 billion in pledges from the EU.

In the Middle East and North Africa, the EU continued to support regulatory reforms and investments

in the decarbonisation of industrial sectors and energy efficiency in buildings. Stakeholders were also

consulted on the development of the Trans-Mediterranean Renewable Energy and Clean Tech

Initiative (T-MED), a flagship initiative under the Pact for the Mediterranean. 

In the Enlargement region and the Eastern Neighbourhood, the EU supported partners' clean energy

transition and integration into the European market. Ukraine introduced a market-based framework

for renewable energy under the Ukraine Facility, while the Republic of Moldova advanced open and

competitive electricity and gas markets under the Reform and Growth Facility. Under the Eastern

Partnership, the EU4Energy programme continued to support alignment with the EU energy acquis,

fostering greater use of renewables, energy efficiency and regional energy security.

In Latin America and the Caribbean, progress was made on Global Gateway regional initiatives on

electricity integration, including the Peru-Ecuador interconnection and the EUR 1 billion EIB lending

facility for the Central American electricity market. Euroclima continued to promote electricity

integration, green hydrogen and other clean energy solutions.

In Asia and the Pacific, the EU progress was made on on the Global Gateway flagship initiative on

Energy Connectivity in South Asia, the ASEAN Power Grid and the Just Energy Transition Partnerships

with Indonesia and Viet Nam. It also worked on green decarbonisation with India, paving the way for

further bilateral cooperation.

All these investments were underpinned by NDICI–Global Europe. Budgetary guarantees and blending

operations under the European Fund for Sustainable Development Plus (EFSD+) were critical to

de-risking private investment in relation to SDG 7. In 2025, 7 EFSD+ guarantees (EUR 1.4 billion)

exclusively supported energy, while about 10 others had energy as a component.

Humanitarian funds complemented these efforts. In Ukraine, the EU supported repairs to damaged

energy infrastructure, including through the delivery of transformers and generators, to maintain

electricity, heating and basic services during winter and while attacks were ongoing. As part of the

greening of humanitarian aid, the EU also supported clean energy in its responses, including solarised

WASH, health or education infrastructure, and implemented innovation projects worth EUR 2.25

million. These focused on access to renewable energy in displacement contexts, through public-

private partnerships, and capacity building for humanitarian organisations. A EUR 1 million of

investment is expected to leverage EUR 5 million for clean energy projects in humanitarian contexts.

3.3.2. SDG 11 – Sustainable cities and communities

In 2025, the EU further strengthened its contribution to SDG 11 by promoting sustainable, resilient

and inclusive urban development as a key pillar of its external action. Cities are recognised as drivers

of economic development and innovation, while being on the front line of climate change,

environmental degradation, social inequalities and the absorption of forced displacement. This is the

case particularly in low- and middle-income countries, where urbanisation continues at high speed.

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Building on earlier work, the EU intensified its support for sustainable cities’ investments in

sustainable and accessible urban mobility and efficient waste management solutions. Under the

Global Gateway strategy, transport investments increasingly looked at “urban nodes” to improve

connectivity, tackle congestion and reduce greenhouse gas emissions, and mirror the EU internal

corridor-approach (TEN-T). The MobiliseYourCity partnership, in particular, promoted sustainable

urban mobility plans and supported cities around the globe in delivering urban mobility solutions. In

Latin America and the Caribbean, the EU worked on preparing investments in clean buses and railways

in Costa Rica and Panama, railways and metro lines in Colombia and Mexico and cable-cars in several

cities across the region. The aim was to help decarbonise urban transport, promote European

excellence and good practices and improve access to jobs and services for urban populations.

The EU also launched a call for proposals under the Early-Stage Investment Mechanism (ESIM) with

the aim of getting the EU private sector to support the first phases of innovative and sustainable urban

development projects and bridge the urban investment gap.

The EU continued to promote greener cities and circular and resource-efficient urban economies,

which included work on solid waste management. Investments in sustainable and inclusive WASH

programmes, including Climate Investor 2 projects in the Philippines, Viet Nam and Mexico, and

blending operations in Pakistan, Benin, Ecuador and the Dominican Republic, helped expand basic

services that are essential for safe and resilient cities.

Disaster risk reduction and climate resilience remained central to work on cities and communities.

Humanitarian and civil protection tools responded to large-scale urban crises, including in Ukraine and

Gaza, where conflict caused widespread destruction of housing and critical urban infrastructure and

massive displacement of people. Urban preparedness is a key focus area for the EU, as demonstrated

through its investment in Malawi (in collaboration with the UNDP) and Zimbabwe (in partnership with

international organisations to strengthen resilience in rapidly urbanising yet fragile contexts).

Partnerships with local authorities and city networks remained crucial. The EU continued city-to-city

cooperation with initiatives such as the 2025 Cities and Regions Forum on “Localising the Global

Gateway”, and others under the international urban and regional cooperation programme. The

implementation of the fourth phase (2025-2029) of the Covenant of Mayors for Sub-Saharan Africa

reinforced the role of African cities and regions as key partners in sustainable and inclusive urban

development. In the Eastern Partnership, the EU launched the third phase of its flagship initiative

“Mayors for Economic Growth” (with the support of the UNDP), which empowers cities and towns in

Armenia, the Republic of Moldova and Ukraine to address rural depopulation, job creation, climate

change and the digital transition, with a sharper focus on local economic development planning and

access to finance.

3.3.3. SDG 12 – Responsible consumption and production

In 2025, the EU strengthened its contribution to SDG 12 by promoting sustainable consumption and

production (SCP) and the circular economy as pathways to clean economies, in line with the European

Green Deal, the Global Gateway strategy and the Clean Industrial Deal. The focus shifted from policy

dialogue to reforms, partnerships and investments that help partner countries reduce resource

pressures, create quality jobs and strengthen value chains, while enabling resilient economic relations

with the EU.

Circular economy and SCP support was scaled up across international partnerships. Building on

achievements in 2024, when over 100 countries benefited from EU support, actions helped partners

translate Green Deal-related objectives and market requirements into policy reform, green business

49

development, eco-innovation, skills development, supply chain management and investment

preparation. Global, regional and national programmes extended to more than 120 partner countries.

The EU contributed to processes, such as the World Circular Economy Forum, the Global Alliance on

Circular Economy and Resource Efficiency, the Africa Circular Economy Alliance and the LAC Coalition

on Circular Economy. In Africa, the EU supported the launch of the Continental Circular Economy

Action Plan for Africa 2024-2034, a roadmap to resource-efficient and inclusive green growth. Flagship

programmes, including the SWITCH programmes in Asia, the Mediterranean and Eastern and Southern

Africa, AL-INVEST Verde and EU4Environment, supported circular value chains, eco-innovation and

green SMEs. The EU Circular Economy Resource Centre strengthened peer-to-peer partnerships

between the EU and various actors in partner countries.

The EU stepped up action on sustainable and deforestation-free value chains. Through DESIRA+ and

related agrifood programmes, it supported value chains in cocoa, coffee, cashew and “forgotten

crops”, linking smallholders to markets, improving soils and promoting agroforestry. The Team Europe

Initiative on deforestation-free value chains expanded to more than 26 producing countries in Africa,

Latin America and Asia, helping them comply with EU market requirements, reduce deforestation and

forest degradation, and promote traceable and sustainable products. EU Forest Partnerships

improved forest management, reduced deforestation and improved partner countries’ benchmarking

under the EU Deforestation Regulation. Complementary work included the design of the EU Forest

Fund, a blending facility for small private-sector companies developing sustainable and legal forest

value chains, and the mapping of innovative financing instruments in 15 forested countries.

In critical raw materials (CRM), the EU supported sustainable, secure and resilient supply chains,

including projects contributing to the CRM Act’s benchmarks on sourcing, processing, recycling and

diversification. It also operationalised a dedicated CRM facility to connect projects with off-takers and

financiers. Action on sustainable cities promoted investments in sustainable urban mobility and

efficient waste-management solutions, contributing to waste reduction and more circular urban

economies. EU humanitarian action integrated SDG 12 through mandatory minimum environmental

requirements for all EU-funded operations and greener procurement, logistics and programme design.

In 2025, the EU funded three “greening” humanitarian aid innovation projects and endorsed common

donor priority actions for greener humanitarian aid under the Humanitarian Aid Donors’ Declaration

on Climate and Environment.

About 30 000 micro, small and medium-sized enterprises applied sustainable

consumption and production practices with EU support under the previous multiannual

financial framework (MFF 2014-2020). As results under the current MFF are only

beginning to materialise for projects launched between 2022 and 2024, almost 5 000

have done the same with EU support under the current MFF 2021-2027(38).

3.3.4. SDG 13 – Climate action

The EU continued to be a leader in the green transition. Climate action was increasingly embedded

across thematic and geographic portfolios. NDICI−Global Europe remained the main budgetary

framework, guided by the 30% climate spending target. Strengthened by the Global Gateway strategy,

it continued to support the integration of mitigation and adaptation measures into all EU action, to

38 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

50

further the green transition and to leverage private investment in clean value chains in partner

countries, in line with the Paris Agreement.

The latest available data for 2025 show that, over 2021-2025, 26% of the total committed amount

under the NDICI−Global Europe contributed to the climate spending target.

The EU and its Member States play a leading role in international climate finance as the world’s largest

provider of climate finance to developed countries. The EU actively seeks to extend the range and

impact of sources and financial instruments and to mobilise more private finance, as major tools to

support international climate action. For example, EFSD+ guarantees and blending supported climate

investment, including through Climate Investor Funds, with at least 50 mitigation and adaptation

infrastructure projects under way. The EU Sustainable Finance Advisory Hub helped develop green

bond frameworks to mobilise climate-aligned private capital.

The EU continued to pursue its climate and environmental goals, including through EU Climate

Dialogues. An additional EUR 15.1 million was provided in support of the Global Methane Pledge

through the United Nations Environment Programme (UNEP), the International Methane Emissions

Observatory (IMEO) and the Climate and Clean Air Coalition (CCAC). The Intra-ACP Disaster Risk

Reduction Programme (DRRP) continued to contribute to climate resilience, adaptation and mitigation

actions. The Commission also continued its involvement in the Fund for Responding to Loss and

Damage and supported partner countries in their efforts to strengthen and implement their National

Determined Contributions (NDCs), National Adaptation Plans (NAPs) and long-term strategies through

the Green Deal Knowledge Hub.

The TEI on adaptation and resilience in Sub-Saharan Africa turned lessons into action by improving

climate and risk data, strengthening early warning systems, expanding access to climate finance and

developing tailor-made insurance products subject to stronger regulatory frameworks. Under the

initiative, the Space for Early Warning in Africa (SEWA) component of the Africa–EU Space Partnership

was launched to support climate resilience and disaster preparedness.

Through TEIs on transboundary water management in Africa and Central Asia, the EU supported new

regional projects and peer-to-peer cooperation on climate-resilient water governance. Global

initiatives on the circular economy covered more than 120 countries, helping reduce resource use and

greenhouse-gas emissions throughout value chains.

Through the StormWatch initiative in the Caribbean, the EU strengthened its partnership to boost the

region’s ability to respond to climate and extreme weather events by providing European technologies

and expertise. In Argentina, Colombia and Brazil, the EU fostered transatlantic cooperation and

regulatory alignment on green technologies, deforestation and environmental regulation by engaging

with public and private stakeholders. Climate initiatives, such as the Second Mediterranean

Assessment Report (MAR2) and the MeetMED initiative, promoted low-carbon transitions and energy

efficiency in buildings in the Mediterranean region.

In 2025 the EU increased its disaster-preparedness budget line to EUR 81 million.

Rapid-response and resilience budget lines under NDICI−Global Europe funded measures to address

climate-exacerbated fragility, including in the Lake Chad Basin, where resilience programmes

incorporated natural resource management.

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3.3.5. SDG 14 – Life below water

In 2025, at the third UN Ocean Conference, the EU tabled more than 50 voluntary commitments,

worth nearly EUR 1 billion. The Conference helped mobilise the international community around the

urgent need to accelerate ocean action and the development of a regenerative, inclusive and climate-

resilient blue economy. The European Ocean Pact and the Finance in Common Ocean Coalition were

instrumental in this endeavour. However, the implementation of SDG 14 and the ocean-related

targets of the 2030 UN Agenda remained off track, with the ocean continuing to face pressure from

pollution, unsustainable fishing practices, biodiversity loss and climate change. In this context, the EU

further strengthened the ocean as a strategic priority in its external action, supporting ocean

governance, ecosystem conservation and restoration, sustainable blue economy development and

ocean science.

At the multilateral level, the European Commission maintained its precautionary stance on deep-sea

mining in areas beyond national jurisdiction, insisting that activities should not proceed until science

has demonstrated the absence of harmful environmental impacts, as required under the UN

Convention on the Law of the Sea (UNCLOS), the necessary provisions in the exploitation regulations

for the effective protection of the marine environment have been put in place. In response to attempts

to circumvent the International Seabed Authority, the EU reaffirmed that UNCLOS sets out the legal

framework within which deepsea mining must be carried out.

The EU continued to promote effective ocean governance through international partnerships and

investments. It enforced measures against illegal, unreported and unregulated (IUU) fishing through

bilateral dialogues, catch-certification schemes and support for regional fisheries management

organisations. To strengthen food security and livelihoods, the EU launched a new Aquatic Food Value

Chains programme (NAVAC – with a budget of EUR 20 million), promoting sustainable aquatic food

systems, resilient value chains and support for women and small-scale producers. The programme

also includes a knowledge hub to help partner countries attract sustainable investments.

The EU launched the first component of the Global Ocean programme, including a technical assistance

facility to help developing countries ratify and implement the Agreement on the conservation and

sustainable use of marine Biodiversity of areas Beyond National Jurisdiction (BBNJ Agreement). The

EU sustained its ocean diplomacy efforts and maintained a high level of commitment towards the swift

ratification and entry into force of the Agreement (that took place in January 2026).

In Africa, the EU launched OPERA (with a budget of EUR 10 million) to strengthen ocean monitoring

and forecasting capacities.

In Sub-Saharan Africa, the EU began to roll out two regional ocean programmes and launched two

additional ones, for a total amount of EUR 170 million. These programmes promote international

ocean governance, a sustainable blue economy, and conservation and restoration of marine and

coastal ecosystems. In line with the Global Gateway strategy, the programmes support sustainable

finance and identify investment opportunities in sectors such as aquaculture, port decarbonisation

and blue biotechnology. In the Pacific, the Pacific European Union Marine Partnership (PEUMP) II

programme was launched, with a focus on sustainable fisheries value chains.

Addressing marine pollution remained a priority. EU programmes in the Mediterranean, the Black Sea

region and across the globe supported wastewater treatment, marine litter reduction, environmental

monitoring, circular economy solutions and improved waste management.

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In the Caribbean, through the Global Gateway Sargassum Initiative, the EU stepped up its activities

related to sargassum management by strengthening regional cooperation, promoting investments in

private-sector-led pilot projects and building broad partnerships between governments, development

banks and the private sector to scale up promising solutions across the region.

In 2025, the International Maritime Organisation (IMO) and the EU officially launched the “Future-

ready shipping in Africa” initiative to support the African continent’s transition toward a sustainable,

decarbonised and digitally advanced maritime sector. The initiative is backed by a EUR 5 million pledge

from the EU.

3.3.6. SDG 15 – Life on Land

In 2025, the EU continued to strengthen its contribution to SDG 15 by supporting the conservation,

restoration and sustainable use of terrestrial and freshwater ecosystems and biodiversity, with strong

links to SDGs 13, 6, 14 and 5.

The EU increased its focus on nature-positive finance, setting up an EU Forest Fund to support small

private-sector companies in the development of sustainable and legal forest value chains and the

preservation of forest resources. It also began mapping opportunities for innovative nature-related

instruments, such as green bonds, forest funds and environmental taxation in 15 forested countries.

In Peru, a pilot project on biodiversity certification and nature credits is being implemented with public

and private partners.

Investments in afforestation, reforestation and sustainable land management across Africa, Asia and

Latin America were supported, including through the Carbon Sinks EFSD+ guarantees (totalling EUR

366 million) signed in October 2024 and other global programmes, such as THRIVELANDS.

The EU maintained its support for legal and sustainable forest value chains through the EU Forest

Partnerships and the Forest Law Enforcement, Governance and Trade (FLEGT) Voluntary Partnership

Agreements (VPA). In 2025, Ghana became the first African country and only the second in the world

to issue FLEGT licences, providing direct access to the EU market for timber products. Through

DESIRA+, the EU promoted sustainable agricultural value chains in cocoa, coffee, cashew and

“forgotten crops”, enhancing soils, promoting agroforestry and connecting producers to local, regional

and international markets. The Team Europe Initiative on deforestation-free value chains was

extended to more than 26 producing countries in Africa, Latin America and Asia.

In Sub-Saharan Africa, the second phase of the NaturAfrica’s initiative was approved, covering a total

area of 2 970 395 km². This initiative promotes integrated landscape management to conserve

biodiversity, strengthen territorial governance and foster green economic opportunities in renewable

energy, transport and agro-processing. The Kivu-Kinshasa Green Corridor in the Democratic Republic

of Congo, a Global Gateway flagship project, is a prime example of that approach.

In the Southern neighbourhood, a regional project on forest genetic resources was prepared to

support conservation and sustainable resource use (MEDFORGEN), while the SEMPA Project

(Bolstering Mediterranean Biodiversity and Marine and Coastal Protected Areas for Nature) is

contributing to the achievement of good environmental status (GES) in the Mediterranean Sea and

Coast in seven countries that are parties to the Barcelona Convention. In Eastern Partnership

countries, EU4Environment activities focused on the sustainable management of forests and

land-based resources and on strengthening the Emerald Network, including new steps to promote

protected area coverage in Ukraine. In the Western Balkans, the EU4Green programme supported

protected floodplain areas and legislative alignment with the EU nature acquis.

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The EU continued to promote global biodiversity governance supporting partner countries’

implementation of the Kunming-Montreal Global Biodiversity Framework (GBF) and other multilateral

environmental agreements, such as the CITES Convention. The EU also launched programmes to

empower indigenous peoples and local communities in conservation actions and policy processes

(COLOURS) and to promote the sustainable and legal use of wildlife resources, including by setting up

a Legal Hub under the Sustainable Wildlife Management Programme.

By the end of 2025, EU-supported interventions, with almost EUR 4 billion mobilised, had placed an

estimated 14 500 km² of terrestrial and freshwater ecosystems under protection. Meanwhile,

large-scale community reserves and land-restoration programmes expanded the area subject to

sustainable use and restoration, contributing to the objective of doubling external biodiversity funding

to EUR 7 billion for 2021-2027.

Some 1.7 million km² of terrestrial and freshwater ecosystems were under protection

with EU support under the previous multiannual financial framework (MFF 2014-2020).

Under the current MFF 2021-2027, the number is 67 000 km² so far, as results under

the current MFF are only beginning to materialise for projects launched between 2022

and 2024(39).

3.3.7. Other major achievements

The recovery of nuclear safety functions damaged since the Russia’s 2022 unprovoked full-scale

invasion continued in Ukraine. A mobile laboratory for in situ radiation measurements was delivered

to Central Radioactive Waste Management Enterprise, along with modernised dosimetry control

systems in the Chornobyl exclusion zone. In 2025, the design of the Integrated Automated Radiation

Monitoring System for the whole of Ukraine, which was developed with EU support, was approved;

implementation started soon after. Finally, the design of a uranium ore processing waste disposal

facility at the site of the former Pridniproskyi Chemical Plant was developed and approved.

The European Instrument for International Nuclear Safety and Cooperation (INSC) was used to

implement part of the EU commitments regarding the implementation of Annex III to the Joint

Comprehensive Plan of Action (JCPoA) on civil nuclear cooperation. All activities for Iran were

suspended after the reimposition of UN and EU sanctions related to the Iran nuclear programme in

September 2025 following the activation of the “snapback mechanism”.

The remediation of the fourth of seven priority uranium legacy sites was completed by the EBRD in

Yangiobod, Uzbekistan, in June 2025. Remediation work at the fifth uranium legacy site – Mailuu-Suu

in Kyrgyzstan – are progressing well and a new financial contribution in 2025 ensured that the work

could continue uninterrupted.

39 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

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3.4. Digitalisation, science, technology, innovation and infrastructure

3.4.1. SDG 9 – Industry, innovation and infrastructure

Digital

In June 2025, the European Commission and the EU High Representative/Vice-President adopted a

Joint Communication on an international digital strategy for the EU(40), setting out a vision for the EU's

external action in the digital field.

Under this strategy, the EU deepened and expanded its digital partnerships. Further meetings of the

Digital Partnership Councils took place with Japan, the Republic of Korea and Singapore, while the first

such meeting was held with Canada. New Digital Dialogues have been launched with key African

partners, including Kenya and Morocco.

The EU made progress on implementing the Global Gateway digital priority and the integrated EU

Tech Business Offer, which combines secure and trusted digital infrastructure, Artificial Intelligence

(AI) and software solutions, 5G/6G, cybersecurity and digital public infrastructure.

The EU scaled up investments in secure and resilient infrastructure. The EU-Africa-India Digital

Corridor “Blue Raman” and the Medusa subsea cable strengthened submarine cable connectivity

between Europe, Africa and Asia. Satellite connectivity expanded through blended finance in Central

Asia, pilot projects in Sub-Saharan Africa linked to IRIS², and a new programme in the MENA region.

EFSD+ guarantees, including the expansion of “Africa Connected” beyond Africa, mobilised

investments in digital infrastructure, including 5G rollouts and data centres, which make it possible to

run AI applications.

The EU invested in digital public infrastructure to promote interoperability and digital sovereignty. A

new ICT standardisation initiative and a programme in Nigeria promoted open source solutions. A new

Digital Economy Package with Mozambique combined investments in connectivity with regulatory

reform, digital skills and digital public services.

The EU strengthened cybersecurity and resilience in the face of hybrid threats through a new action

on cybersecurity and AI capacity-building. The Tallinn Cyber Diplomacy Summer School and EU

CyberNet boosted these efforts, while Eastern Partnership programmes improved cybercrime

preparedness and alignment with EU cybersecurity legislation.

In the Neighbourhood and Enlargement regions, the AI-based “eAccession” tool was finalised to

support regulatory alignment with the EU acquis. EU4Digital continued to facilitate integration with

the EU digital single market, and the EU4Digital academy provided free courses on cybersecurity,

digital marketing, business digitalisation and e-commerce, fostering digital entrepreneurship. In the

MENA region, a new initiative supported the digital transformation of partners, focusing on regulatory

reforms, cybersecurity and digital skills.

The EU leveraged Copernicus data in the Asia-Pacific for spatial planning and climate-change

mitigation and initiated the design of a programme on use of satellite navigation and Earth

Observation data in the MENA region. Meanwhile, Stormwatch used EU satellite data and

supercomputing to improve disaster preparedness in Latin America. The EU also strengthened digital

innovation ecosystems in Africa thanks to the Africa-Europe Digital Innovation Bridge ( AEDIB),

40 JOIN(2025) 140 of 5 June 2025 ; https://digital-strategy.ec.europa.eu/en/library/joint-communication-international- digital-strategy-eu

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supported the twin transition through the Digital and Green Innovation programme, and advanced

women’s leadership in the public ICT sector with a joint initiative.

Research and Innovation

In 2025, the EU supported research and innovation ecosystems in partner countries as a key driver of

sustainable, inclusive growth. Actions strengthened policy frameworks, scientific and technological

capacities and innovation infrastructures, linking research results to investment and value chain

development.

In Africa, support for research and innovation was closely connected to the Global Gateway Africa–

Europe Investment Package. Actions backed scientific and technological solutions for the energy

transition, sustainable agriculture and health (including local manufacturing of health products) and

innovation in critical raw materials value chains. Building on initiatives such as the Africa Research

Initiative for Scientific Excellence (ARISE) and EU-ACP research and innovation programmes, support

helped consolidate research networks, centres of excellence and incubation structures that foster

collaboration between universities, research institutes, companies and public authorities.

In Latin America and the Caribbean, Global Gateway flagship projects, such as the EU–LAC high-

performance computing network and the sargassum management project, continued to promote

advanced digital research infrastructure and applied innovation in support of climate action and the

blue economy. In Asia and the Pacific, the EU invested in the use of Copernicus data for spatial

planning and climate change mitigation, boosting partner countries’ capacity to generate and use

geospatial information for public policies.

In the Middle East and North Africa, the EU supported the connection of EU national research and

education agencies with the Arab agencies network, laying the ground for further expansion in 2026.

Across regions, digital partnerships under the Global Gateway digital pillar mobilised research and

innovation around secure connectivity, trustworthy AI, cybersecurity, space-based services and digital

public infrastructure. Meanwhile, dedicated hubs and platforms supported the sharing of knowledge

and technical expertise.

Sustainable transport

In 2025, sustainable transport remained a key focus of the EU’s external action under the Global

Gateway strategy, supporting greener and more resilient connectivity. The EU actively promoted

transport infrastructure investments and EU industry worldwide, including in key urban nodes, to

foster sustainable development, reduce greenhouse gas emissions and diversify supply chains.

The Commission’s cooperation with the private sector in the transport field has continued in 2025.

This included consolidating the Railway Working Group on three continents, moving forward on the

Green Shipping Corridors Initiative, preparing the Global Gateway Aviation Dialogues, contributing to

the Global Gateway Bus Working Group and continuing work with the Global Gateway Business

Advisory Group on transport. Implementation of the technical assistance facility Global Gateway

Transport Support Mechanism (GGTSM) continued, with nearly 40 assignments ongoing or completed.

Various global projects in the rail, road or maritime sub-sectors were signed (with the IMO, the

International Road Transport Union (IRU), and the European Maritime Service Agency for the MENA

region) or are in preparation (with the European Union Agency for Railways (ERA)), while still others

(with the International Civil Aviation Organization (ICAO), the European Union Aviation Safety Agency

(EASA), and the IMO) were ongoing. A call for proposals aimed at supporting the EU private sector was

launched under the Early-Stage Investment Mechanism (ESIM).

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Work progressed on priority regions and economic corridors: Along the 12 African priority corridors,

the Trans-Caspian Transport Corridor (TCTC), the India-Middle East-Europe Corridor (IMEC), and in

Asia, Latin America and the Caribbean, as well as in the ENEST (e.g. Solidarity Lanes) and MENA

regions, various investments are under preparation or being advanced – some of which with EIB

IW1(41) backing. These investments span the sectors of rail (Panama, Mexico, South Africa, Bangladesh,

Vietnam, South Caucasus), road (Djibouti, Kyrgyzstan, Uzbekistan), maritime transport (Benin,

Namibia, Chile, Mexico, Panama and the Caribbean, the Southern Neighbourhood), urban mobility

(Costa Rica, MENA region), logistics infrastructure (Kyrgyzstan) and aviation (studies for sustainable

aviation fuels, in particular in 14 African countries and in India, safety equipment to airports in Burundi

and Liberia). In addition, transport and trade facilitation projects were designed and approved, in

particular in Africa and Central Asia, covering also safety, security, and sector decarbonisation.

EU investments, under the previous multiannual financial framework, supported the

construction of around 14 000 km of roads, the rehabilitation of over 10 000 km, and

the maintenance of almost 60 000 km of existing routes(42).

3.4.2. Other major achievements

The Digital for Development (D4D) Hub continued to bring together EU Member States, EU

institutions, financial actors and the private sector around shared digital priorities and playing a key

role in facilitating the EU Tech Business Offer. During its first year, the offer included policy dialogues,

study visits, business matchmaking, investment facilitation and targeted cooperation with EU digital

companies seeking opportunities in strategic markets. Specific initiatives included the EU-Viet Nam

Global Gateway Investment Forum, the Caribbean-EU Study Visit on Digital Transformation and the

EU-Nigeria Digital Open Days took place.

The Knowledge Hub Digital (KHD) remained an agile facility that provides EU Delegations and partners

with specialised expertise. Its resources were boosted in 2025 due to high demand for its services,

including technical analysis to underpin Global Gateway actions, capacity development and support

for policy dialogues.

Digital skills are intrinsically linked to digital development other than infrastructure. The target groups

on digital skills are on all levels from basic education to specialised university level to all audiences.

The D4D hub identified and showcased successful EU Member State initiatives on digital skills across

partner countries to create a common narrative, strengthen cooperation (including with the private

sector) and scale up previously tested programmes across regions.

The Global Gateway Business Advisory Groups organised exchanges on digital development, including

skills development as a cross-cutting element.

At the EU–CELAC (Community of Latin American and Caribbean States) Summit in November 2025,

leaders endorsed the progress of the EU–LAC Digital Alliance. More than 70 partnerships between

businesses have been concluded in the framework of the EU–LAC Digital Accelerator.

41 The European Investment Bank is the exclusive implementing partner of the Investment Window 1 under NDICI. 42 Results for the previous MFF (2014-2020) are presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

57

In the Western Balkans, the Digital Summit focused on cooperation in digital services, the digital

identity wallet, interoperability, AI, cybersecurity, e-services, and skills development. The EU launched

new European Digital Innovation Hubs, while North Macedonia and Serbia were selected to host AI

Factory Antennas.

Ukraine and the Republic of Moldova joined the EU’s Roam-Like-At-Home area. The Republic of

Moldova also gained access to the EU Cybersecurity Reserve and received funding for an AI Factory

Antenna and a European Digital Innovation Hub.

The EU-Egypt Summit agreed investments in trusted, secure digital connectivity and data

infrastructures and resolved to push forward on cybersecurity, AI, the data economy and digital skills.

At the 2025 EU-African Union Summit, the parties welcomed each other’s digital strategies and

committed to further cooperation. The EU-India Free Trade Agreement includes a chapter on digital

trade, with the aim of creating a predictable, secure and fair digital trade environment.

The EU remains a staunch supporter of an effective multilateral system and continues to defend the

commitments agreed by consensus in various UN frameworks. The EU continued to implement the

UN Global Digital Compact and engaged openly and constructively in the Global Dialogue on AI

Governance. The World Summit on the Information Society 20-year review (WSIS+20) was a major

milestone for global digital governance, where the EU played a leading role in the consensual adoption

of the outcome document. Through its partnership with the International Telecommunication Union

(ITU), the EU advanced work on digital rights, open source software, capacity building, universal

connectivity and AI.

3.5. Sustainable growth and jobs

3.5.1. SDG 8 – Decent work and economic growth

Figure 6. SDG 8 – interlinkages with other goals

Figure 6 above shows the main synergies between SDG 8 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 9 on industry, innovation and

infrastructure, and SDG 7 on affordable and clean energy.

In 2025, the EU further increased its contribution to SDG 8 by fostering sustainable and inclusive

economic growth, in particular by accelerating implementation of the Global Gateway strategy and

related strategic investments.

The Commission supported an enabling environment for Global Gateway investments, trade and

sustainable jobs in partner countries. Improving the investment climate and economic governance

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was a priority. Budget support and technical assistance programmes helped partner countries

strengthen public finance management, mobilise domestic resources, reduce debt vulnerabilities and

improve the business environment, in order to scale up Global Gateway investments. For example, in

2025 the new budget support operation in Cabo Verde included measures to optimise the mobilisation

of domestic revenue, digitalise public administration, improve the transparency and efficiency of

tender procedures, restructure selected state-Oowned enterprises (SOEs) in the electricity sector, and

accompany Global Gateway investments in the country (e.g. the Santiago pump storage facility).

Cooperation with the European private sector was scaled up. Notably, the Global Gateway Investment

Hub launched in October 2025 to cover Sub-Saharan Africa, Latin America and the Caribbeans, and

the Asia-Pacific region became operational, enabling EU companies to submit investment proposals

directly via a Team Nationaland request support. The Global Gateway Business Advisory Group (GG

BAG) served as the main channel for direct and structured dialogue with the EU private sector. In

addition, EU business Forums facilitated networking and deal-making between European companies

and partner country governments. At the 2025 AU-EU Business Forum, held on the margins of the AU-

EU Summit, 97% of private sector respondents expressed interest in participating in future forums.

The GG BAG Facility provided technical assistance to Commission staff to strengthen cooperation with

the EU private sector.

The EU supported the development of environmentally and socially sustainable, secure and resilient

supply chains for the supply of critical raw materials (CRM) to the EU and contributed to the

implementation of Strategic Partnerships on raw materials value chains with partner countries.

Following a “Team Europe” approach, special attention was given to supporting mutually beneficial

strategic projects and contribute to achieving the CRM Act’s benchmarks on sourcing, processing,

recycling and diversification of suppliers. Additional priority projects of potential EU interest were

identified. The Commission extended the duration and budget role of the INTPA CRM facility in

December 2025. Work started on connecting priority projects to offtakers and financial institutions.

The provision of budgetary guarantees and blending to INTPA partner countries under NDICI–Global

Europe was critical to support Global Gateway objectives. In 2025, 20 new EFSD+ guarantees were

signed with different development finance institutions, for a total guarantee amount exceeding EUR

3 billion, and deployment started with 63 operations signed in 2025. Blending operations approved in

2025 are expected to generate around EUR 18 billion of investments, notably in energy, climate,

digital, agriculture, manufacturing, micro-, small- and medium-sized enterprises and capital markets,

which will underpin job-rich, sustainable growth.

Throughout 2025, the Global Green Bond Initiative (GGBI) made significant progress in steering capital

towards green and inclusive growth. Through the EU Sustainable Finance Advisory Hub, targeted

technical assistance was delivered in 11 partner countries and regions, supporting the development

of sustainable finance frameworks, green bond pipelines and regulatory instruments, including

sustainable finance taxonomies and green bond frameworks. These efforts contributed to

strengthening local capital markets and increasing countries’ capacity to mobilise private finance for

climate and environmental investments.

Progress on the GGBI Fund reached a major milestone in 2025, providing the basis for its subsequent

launch. By the end of the year, the GGBI had established the foundations for a large-scale mobilisation

of capital for sustainable infrastructure and climate-related investments in low- and middle-income

countries, while promoting high environmental standards and supporting the development of

domestic green bond markets.

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The Commission continued to rally multilateral support for EU policy priorities through intensified

cooperation with international financial institutions. In October 2025, the Commission signed a

cooperation arrangement with the World Bank Group on high impact projects. In parallel, Team

Europe cooperation was boosted with the launch of the European Procurement Partnership (EuPP) in

December 2025. The partnership brings together the EU, its Member States and partners to support

public procurement reforms in partner countries, increasing visibility, effectiveness, and collective

impact.

Under the NDICI–Global Europe framework, the Commission promoted employment and decent work

as a core response to global challenges, supporting partner countries in building inclusive, sustainable

and job-rich economies. To increase insight in employment outcomes, work on modelling the impact

on jobs of investment continued with the International Labour Organization (ILO) and in 2025 an

online tool was set up to enable direct consultation of the ILO model. The Corporate Sustainability

Due Diligence Directive, adopted in 2024 and amended in 2025, adresses labour standards in the

supply chains of large companies that are active on the single market. The Team Europe Initiative

“Sustainability in Global Value Chains” inventoried and analysed hundreds of accompanying measures

supported by the Commission, EU Member States and international organizations. The aim was to

bring the measures together under a “Due Diligence Navigator” that would enable stakeholders in

partner countries to identify the support measures needed to be ready to meet expectations of

business partners within the scope of the legislation.

Global Gateway corridors and connectivity initiatives aimed to foster trade, investment flows and

regional integration, which are essential to develop productivity gains and new economic

opportunities.

Action taken in 2025 included:

• In Africa, among twelve priority economic corridors, the Lobito Corridor, a strategic

infrastructure that connecting the south of the Democratic Republic of the Congo and the

Northwestern Province of Zambia to the port of Lobito in Angola. In 2025, EU investments

along this corridor were focused on agricultural value chains and agro-logistics centres, support

for vocational training in the artisanal mining sector and cross-border trade facilitation.

• The ongoing implementation of the African Continental Free Trade Area (AfCFTA) with a large-

scale and comprehensive Team Europe Initiative (with a budget of EUR 1.1 billion). This

includes more than 70 regional projects to support trade facilitation across the continent at

regional and country levels, covering all aspects of market integration (e.g. e-commerce,

intellectual property rights and cross-border trade).

• In Central Asia, a EUR 12 billion Team Europe investment package focused on strengthening

transport links, including through the Trans-Caspian Transport Corridor, and deepening

cooperation on critical raw materials, digital connectivity, water and energy, including

hydropower infrastructure.

• With India, and within the framework of the India–Middle East–Europe Economic Corridor,

concrete progress on the EU–Africa–India Digital Corridor, an initiative aiming to establish

trusted, secure and high-capacity data connection between continents.

• In Central America, a flagship initiative f to strengthen the Regional Electricity Market. In 2025,

the initiative was backed by an EIB EUR 1 billion lending facility for electricity integration and

energy transition and complemented by a growing amount of co-funding by European DFIs and

Latin American MDBs for a minimum EUR 300 million additional amount. These resources were

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complemented by dedicated technical assistance to reinforce the regional market rules and

complete the design of electricity transmission projects.

In agrifood systems, the DESIRA+ initiative and related programmes promoted sustainable value

chains in cocoa, coffee, cashew and “forgotten crops”, to improve soils, encouraging agroforestry and

connect producers to local, regional and international markets. The Team Europe Initiative on

deforestation-free value chains was expanded to include more than 26 producing countries in Africa,

Latin America and Asia, helping partners comply with EU market requirements and supporting more

sustainable, higher-value exports. The EU prepared an EU Forest Fund to support small private sector

companies in developing sustainable and legal forest value chains and preserving forest resources.

The EFSD+ “TERRA” guarantee signed with CDP in 2025, promotes the acceleration of the transition

toward sustainable agrifood systems through integrated capacity building and enhanced access to

innovative finance.

An Early-Stage Investment Mechanism was launched to provide grants to EU companies involved in

the early stages of sustainable transport, urban development, energy and AI projects, helping to

de-risk innovation and crowd in further finance.

Education and skills programmes (including opportunity-driven vocational education and training

(VET) and higher education) were increasingly aligned with sectors prioritised under the Global

Gateway strategy, with six new opportunity-driven VET projects launched in several African countries

to match training with labour market needs. One example is the Ignite GH2 project, which addresses

a critical skills gap in Namibia’s green hydrogen and Power-to-X sectors. Implemented by a consortium

of public and private actors, it aims to upskill some 700 unemployed technical vocational education

and training (TVET) graduates to increase their employability. Systematic use of the gender, disability

and inequality markers helped ensure that investments take account of distributional impacts,

promote women’s economic empowerment and inclusion, and connect underserved communities.

Work continued on responsible value chains and labour standards, including efforts to eradicate child

labour and strengthen social dialogue.

Around 4 million jobs have been supported or sustained with EU support under the

previous multiannual financial framework (MFF 2014-2020). As results under the

current MFF are only beginning to materialise for projects launched between 2022 and

2024, a further 150 000 have so far been supported or sustained under the current

MFF, of which more than 147 000 green jobs (43).

EU‑backed programmes expanded access to finance for nearly 17.5 million firms and more than 3.3

million people under the previous MFF(44).

43 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025. 44 Results for the previous MFF (2014-2020) are presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025.

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3.6. Migration and forced displacement

3.6.1. SDG 10.7 – Facilitate orderly, safe, regular and responsible migration and mobility of

people, including through the implementation of planned and well-managed migration policies

Figure 7. SDG 10 – interlinkages with other goals

Figure 7 above shows the main synergies between SDG 10 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 16 on peace, justice and strong

institutions, and SDG 8 on decent work and economic growth.

In line with SDG 10.7 and with the EU Pact on Migration and Asylum, the EU took decisive steps to

improve its strategic and comprehensive policy and partnership approach to migration and asylum,

with a strong focus on migratory routes towards the EU.

Irregular crossings at the EU’s external borders fell to around 179 000 in 2025, a quarter less than in

2024, partly reflecting enhanced cooperation with partner countries. The number of asylum

applications in the EU also decreased in 2025, by around 19% compared with 2024. However, at the

end of 2025 there were 41.6 million refugees globally, in addition to 9 million asylum seekers and 68.7

million internally displaced people.

The EU Action Plan on the Western Balkans continued to yield very positive results. The 2024 trend in

the number of of reduced irregular border crossings on the Western Balkans route (down 80%)

continued in 2025, sustained by EU financed projects in the region for a total of just over EUR 350

million until 2025. In Türkiye, under the post-Facility support for refugees in Türkiye, the Commission

adopted a EUR 161 million top-up to strengthen the country’s eEastern and South-Eastern borders,

and a EUR 150 million top-up to the project to support voluntary returns of Syrian refugees

implemented by UNHCR.

The legacy of the EU Trust Fund in response to the Syria crisis (the Madad Fund), along with follow-up

actions, continued to underpin support for more than 12 million Syrian refugees and host community

members in Lebanon, Jordan, Iraq, Türkiye and Syria itself. Here, the focus was on education, health,

WASH, livelihoods and social protection as enablers of inclusion and voluntary, safe and dignified

return.

For the Southern Mediterranean, a new migration Multiannual Action Programme 2025-2027 in North

Africa with a budget of EUR 675 million was adopted to support partner countries on migration

management, protection, return and reintegration, and legal migration and mobility. In 2025, the EU

regional programme implemented by the IOM helped over 35 000 migrants to return to their countries

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of origin from North Africa. Furthermore, under the thematic human rights and democracy

programme, the partnership with UNICEF aimed to help children in situations of distress. On legal

mobility, Tunisia registered 1 269 mobilities in 2025, of which over half were women, linked to job

opportunities in the EU in sectors in need of human resources. A total of 399 Tunisian returnees were

also helped to return and reintegrate their region of origin.

These efforts were complemented by the launch of the Pact for the Mediterranean, mainstreaming

the EU’s comprehensive approach to migration. Fostering assisted voluntary returns and sustainable

reintegration of irregular migrants stranded in Sub-Saharan Africa remained a key priority, with

substantial EU support mobilised. In 2025, the flagship Migrant Protection, Return and Reintegration

Programme for Sub-Saharan Africa helped over 20 800 migrants return to their country of origin (with

67% returning from Niger and 13.5% from Mauritania) and over 44 100 reintegrate their country of

origin in Sub-Saharan Africa (including nearly 28 000 migrants returning from North Africa). Building

on the migration partnership with Mauritania adopted in 2024, implementation of all actions in the

EUR 210 million EU support package were ongoing, significantly increasing Mauritania’s capacity to

manage migration and forced displacement and to create economic opportunities in regions affected

by mixed movements. Negotiations on a Strategic and Comprehensive partnership with Senegal were

launched, complementing wider efforts in West Africa to improve capacities to prevent irregular

departures and unsafe journeys.

In Eastern and Central Africa, new initiatives underlined the EU’s continued engagement to support

the regional impact of the world’s largest displacement crisis. In Chad, the EU mobilised EUR 51 million

to strengthen the resilience of Sudanese refugees and their vulnerable host communities. In South

Sudan, the EU provided EUR 12 million to help communities through resilience-building actions in

areas affected by displacement and returns.

In Asia, the EU stepped up its engagement with Afghanistan, Bangladesh and Pakistan, in a context

where an estimated 2.9 million Afghans were forcibly returned from Iran and Pakistan in 2025. Under

the Team Europe Initiative on the Afghan displacement situation, the EU combined a EUR 83 million

programme for basic needs and livelihoods with an additional EUR 38.5 million to address the

displacement crisis. It also stepped up migration and mobility dialogues and border management

support to Bangladesh and Pakistan.

The EU also intensified its work fighting migrant smuggling and trafficking in human beings at global

level. A EUR 15 million action on the financial and digital dimensions of migrant smuggling was

launched, as part of a EUR 78 million funding package announced in December 2025 as a contribution

to the Global Alliance to Counter Migrant Smuggling. In addition, at the Global Refugee Forum

Progress Review meeting in December 2025, the Commission demonstrated its firm commitment to

continue supporting refugee hosting countries. This was in contrast to the steep drop in contributions

from other donors, and overall concerns about the sustainability of the international system of

financing.

In 2025, the EU remained committed to open legal pathways to protect people in need of protection

and to support resettlement and humanitarian admission. Eleven Member States transferred more

than 9 700 persons in need of protection in 2025 under the EU Resettlement and Humanitarian

Admission Scheme for 2024-2025 (out of almost 26.000 resettlement and humanitarian admission

transfers over 2024-2025). The EU supported in 2025 the Emergency Transfer Mechanism in Rwanda

(around 1 700 refugees were transferred from Rwanda through the ETM between 2022 and 2025) and

the Refugee Support Facility in Türkiye.

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Humanitarian aid remained a central pillar of the EU’s contribution to SDG 10.7. In 2025 around 15%

of the humanitarian aid budget was dedicated to protection, with a strong focus on refugees and

internally displaced persons (IDPs) in crises such as in Ukraine, Gaza, Sudan, Syria, Afghanistan and the

Horn of Africa. In 2025, about 87% of humanitarian aid funding was allocated to projects addressing

forced displacement.

Across regions, the EU strengthened its human-rights based approach to migration, adopting internal

guidelines and tailor-made procedures to improve the design, identification, formulation and

monitoring of migration actions and the handling of alleged violations.

Under the previous multiannual financial framework (MFF 2014-2020), more than 84

million migrants, refugees, internally displaced people and host‑community members

were protected or assisted with EU support. Under the current MFF 2021-2027, it is

now about 5.8 million, as these results are only beginning to materialise for projects

launched between 2022 and 2024(45).

More than 1.3 million people benefited from EU‑supported interventions that aim to reduce social

and economic inequality under the current MFF(46).

3.7. Governance, peace and security

3.7.1. SDG 16 – Peace, justice and strong institutions

Figure 8. SDG 16 – interlinkages with other goals

Figure 8 above shows the main synergies between SDG 16 and a broad range of other significant SDGs

(numbers on the right), notably SDG 5 on gender equality, SDG 10 on reduced inequalities, and SDG 8

on decent work and economic growth.

In 2025, NDICI–Global Europe continued to support peace and security, justice and strong institutions,

including the rule of law, human rights and democracy (see section 1.8).

The programme on peace, stability and crisis response supported: (i) justice and victim rehabilitation

(including to ensure accountability for atrocity crimes committed in Ukraine); (ii) the clearing of mines

to protect returning civilians in Syria; and (iii) the management of post-war debris and the restoration

of access to basic services to communities in Gaza. Regional programmes aimed at boosting people’s

45 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025. 46 Ibid.

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resilience through economic recovery, social cohesion and sustainable land management included

RESILAC2 in the Lake Chad Basin and the SIERY project in Yemen, which restored 177 public services

and improved access for over 7 million Yemenis. In addition, geographic programmes in fragile settings

linked human rights with peacebuilding and resilience, for example by protecting human rights

defenders and survivors of gender-based violence in Sudan, supporting community-based

reconciliation in the Tigray region, advancing women’s economic empowerment and access to basic

services in the Central African Republic, and combining land-rights formalisation with environmental

protection and reintegration of ex-combatants in Colombia.

The EU supported non-proliferation and disarmament, amongst other, in Syria and Ukraine through

the Organisation for the Prohibition of Chemical Weaponsand the Biological Weapons Convention

process, along with measures on small arms and light weapons and arms export controls.

In the field of security, counterterrorism measures and action to prevent violent extremism were

strengthened through the EU–UN Global Terrorist Threat Facility, which delivered support to Iraq,

Nigeria and Somalia, and through work on multilateral judicial cooperation with the League of Arab

States. The EU also addressed illicit financial flows (IFFs), asset recovery and the financial dimension

of organised crime. Through the Team Europe Initiative on Illicit Financial Flows and Transnational

Organised Crime in Africa, the EU and participating EU Member States (Finland, France, Germany,

Sweden and Spain) continued to promote a coordinated “follow the money” approach. The initiative

supported African partners in strengthening AML/CFT frameworks, financial intelligence, beneficial

ownership transparency, tax and trade transparency, inter-agency cooperation, asset tracing and

recovery, and regional cooperation. By connecting crime-related and tax-related IFFs, the Team

Europe Initiative also contributed to stronger institutions, domestic resource mobilisation, financial

integrity and a stronger enabling environment for sustainable investment. In the Middle East and

North Africa region, the Transparency Now project strengthened capacity for cross-border anti-

corruption investigations, including as regards the confiscation and recovery of assets associated with

criminal activities.

Cybersecurity and hybrid threat responses were strengthened. EU CyberNet was expanded to the

Indo-Pacific, connecting experts and organisations and supporting reforms aligned with the Budapest

Convention in nine countries, thereby enabling Rwanda, São Tomé and Príncipe, and Vanuatu to join

the Convention. New thematic actions addressed cybersecurity, disinformation and the prevention of

electoral violence, while rapid response interventions on foreign policy needs targeted hybrid threats

and cybersecurity, civil aviation security, economic security and foreign information manipulation and

interference (FIMI).

In 2025, the EU further strengthened its support for peaceful and inclusive societies, access to justice

and effective, accountable institutions in an increasingly volatile global context. The European

Commission adopted the EU Civil Society Strategy, laying the groundwork for stronger engagement,

support and protection and an empowered civil society, and the EU Democracy Shield, which

underscored the crucial importance of electoral integrity, media freedom, and protection against FIMI.

In parallel, the project “Shielding Democracy: Strengthening the Republic of Moldova's Electoral

Integrity through Enhancing Capacity and Resilience” boosted the Central Electoral Commission’s

capacity to manage electoral risks and counter malign interference, including cyber threats,

disinformation, FIMI, and social media interference. In the Western Balkans, the EU reaffirmed its

commitment to electoral reforms aligned with international recommendations by signing a new

collaboration with the Office for Democratic Institutions and Human Rights (ODIHR) of the

Organization for Security and Co‑operation in Europe (OSCE) and working to improve the conduct of

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elections across the six Western Balkans beneficiaries and further align electoral processes with

international obligations, standards and good practice.

The EU also continued to advance the Women, Peace and Security Agenda and the Youth, Peace and

Security Agenda as contribution to inclusive peacebuilding and effective institutions. The EU promoted

the meaningful, inclusive and safe participation of young people in peacebuilding, conflict prevention,

mediation and decision-making processes, especially through the 2nd Youth, Peace and Security

Conference in Brussels in November 2025. It also continued to support youth-led organisations,

including the United Network of Young Peacebuilders. The Joint Declaration of the EU-AU Summit

reiterated the parties’ commitment to the Women, Peace and Security Agenda, while EU Security and

Defence Partnerships concluded with the United Kingdom and Canada in 2025 integrated references

to the Women, Peace and Security Agenda as standing paragraphs and reflected the growing

importance of youth participation and perspectives in security policy and peacebuilding initiatives.

The EU placed particular emphasis on “people centred justice”, funding legal aid schemes in Bhutan,

Burundi, Laos, Malawi and Tanzania and village court type mechanisms in Bangladesh and Papua New

Guinea to improve access to justice for marginalised populations. It supported efforts to improve

detention conditions in Burundi, Cameroon, Comoros, Congo, Gabon, Lebanon, Liberia, Malawi,

Morocco, Mauritania, Paraguay and Ivory Coast, with special attention to vulnerable groups, such as

internally displaced persons. The EU continued to promote good governance and improve institutions

through sectoral approaches. Through its Forest Partnerships and FLEGT Voluntary Partnership

Agreements, for instance, the EU contributed to ensuring indigenous peoples rights in Honduras and

Guyana, enforcing benefit sharing in Liberia, strengthening the new forest agency in Mongolia, and

empowering women in forest management in Ghana.

The EU maintained its staunch support for civil society organisations, including through the NDICI CSO

Thematic Programme, through capacity building, policy dialogue and support for civic participation

and by empowering civil society organisations as actors of democratic governance, accountability,

transparency and inclusive decision-making. Finally, the EU continued its strategic cooperation with

associations of local authorities, the European Committee of the Regions, and the OECD. It also

promoted decentralised cooperation between local authorities in Europe and partner countries, while

providing technical assistance to strengthen the territorial approach to local development. The 2nd

EU–UN Policy Dialogue and the 9th Forum of Cities and Regions for International Partnerships

showcased how local and regional authorities contribute to SDGs and can play a role in the Global

Gateway investments.

Around 53 million people benefited directly from EU-supported interventions for

civilian post-conflict peacebuilding and conflict prevention under the previous

multiannual financial framework (MFF 2014-2020), with a further 1.9 million benefiting

under the current MFF 2021-2027 (47).

More than 140 000 victims of human rights violations received assistance funded by the EU under the

current MFF, under the previous MFF another 180 000 recieved the same kind of assistance(48).

47 For methodological reasons, results under the current MFF 2021-2027 cannot be aggregated with those under the previous MFF (2014-2020). Results for the previous MFF are nevertheless presented, as reporting is still ongoing: some interventions remain under implementation, while others submitted their final reports in 2025. 48 Ibid.

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Over 6.6 million people benefited from EU‑supported legal aid interventions under the previous MFF.

Under the current MFF, and as these results are only beginning to materialise for projects launched

between 2022 and 2024, so far 91 000 have benefited from legal aid(49).

49 Ibid.

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4. Geographic overview

4.1. Sub-Saharan Africa

4.1.1. Introduction (policy developments)

In 2025, the European Union (EU) and the African Union (AU) further strengthened their strategic

partnership under the Joint Vision for 2030. Two major political milestones marked the year: the third

EU–AU ministerial meeting in Brussels in May, and the seventh AU–EU Summit in Luanda in November.

These events celebrated the 25th anniversary of the partnership and reviewed progress on the Joint

Vision for 2030, alongside the AU–EU Business Forum and the CSO–Youth Forum. In addition,

cooperation also advanced in agriculture with the sixth EU–AU Conference of Agriculture Ministers,

which promoted closer alignment between the AU’s Comprehensive Africa Agriculture Development

Programme (CAADP) and the EU’s Vision for Agriculture and Food.

The EU continued to work closely with African partners in multilateral forums, including on

implementing the Pact for the Future and the UN reform agenda, strengthening coordination in bodies

such as the G20, and advancing shared priorities on sustainable development, climate, biodiversity,

reform of the international financial architecture, and on debt vulnerabilities.

26 partnership dialogues between the EU and Sub-Saharan African countries were held in 2025.

In 2025, the EU remained Africa’s leading trade, investment, peace and security partner, provider of

Official Development Assistance, and humanitarian donor. EU trade with the continent reached EUR

360 billion, representing 33% of Africa’s total trade. EU foreign direct investment stock totalled EUR

250 billion.

Implementation of the Global Gateway Africa–Europe Investment Package accelerated significantly

throughout the year. As announced by the President of the European Commission at the seventh AU–

EU Summit, EUR 120 billion had been mobilised until 2025, keeping the partnership on track to meet

the EUR 150 billion target set under the Joint Vision for 2030. Sub-Saharan Africa attracted a growing

pipeline of Team Europe Initiatives and flagship projects in sustainable connectivity, energy, health,

digitalisation and education.

Regional transport and trade corridors remained a key focus. Progress continued, for example, on the

Lobito Corridor linking Zambia and the Democratic Republic of the Congo to the port of Lobito in

Angola, and on the Douala–N’Djamena Corridor. Support for the operationalisation of the African

Continental Free Trade Area (AfCFTA) increased through assistance on trade facilitation, customs and

standards. In digital connectivity, progress was made through expanded high-speed broadband

coverage and last-mile infrastructure, improving affordability and access to digital services. In the

energy sector, the Africa–Europe Green Energy Initiative expanded support for renewable energy

generation and regional electricity integration, including grid upgrades and investments in solar and

wind power.

The EU also advanced cooperation on natural resources, climate resilience and food systems. Under

the NaturAfrica programme, biodiversity conservation continued across six priority habitat regions.

The Team Europe Initiative on transboundary water management supported partner countries in

improving water security and WASH systems. Global Gateway investments also promoted more

resilient food systems, including irrigation projects in Somalia and climate-smart agricultural value

chains. The implementation of ocean regional programmes covering Sub-Saharan Africa well-

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progressed. Human-centered initiatives like BlueInvest Africa(50) feature African entrepreneurs who

bring investment-ready solutions to ocean and coastal challenges, from climate resilience and marine

biodiversity to circular economy and maritime infrastructures.

Human development remained central to EU–Africa cooperation, with actions in all Sub-Saharan

African countries at bilateral or regional level. This included support for the Team Europe Initiative on

Opportunity-driven Skills and Vocational Education and Training in Africa, aligning skills development

with employment opportunities created by Global Gateway investments. Erasmus+ scholarships for

African students, researchers and academics and capacity building projects in Higher Education,

Vocational Education and Training, and youth expanded further. The Africa Teacher Programme

continued financing the salaries of tens of thousands of teachers.

Health cooperation focused on strengthening health systems and advancing Africa’s health

sovereignty and security. This included support for local manufacturing of vaccines, medicines and

health technologies under the Team Europe Initiative on Manufacturing and Access to Vaccines,

Medicines and Health Technologies in Africa (MAV+), alongside broader action in public and digital

health.

Peace, security and governance challenges intensified across parts of Sub-Saharan Africa. The EU’s

response combined diplomatic engagement, crisis response and complementary security and defence

instruments, anchored in human rights and international humanitarian law. By the end of 2025, the

EU had provided a total of EUR 400 million in support of African countries through the European Peace

Facility, an off-budget instrument, in addition to its contribution to African Peace-keeping operations

through the support program to the AU.

In the Central Sahel, the EU adapted its engagement to the evolving context, maintaining direct

support to populations while continuing to suspend budget support, security programmes and direct

funding to state authorities, and maintaining the CSDP mission EUCAP Sahel Mali. In November 2025,

the Foreign Affairs Council endorsed a Renewed Approach for the Sahel focused on political and

diplomatic engagement, human security, social cohesion and economic opportunities.

The EU also strengthened its response to insecurity spilling from the Sahel into coastal West Africa,

particularly in northern Benin, Togo, Côte d’Ivoire and Ghana, combining security and defence support

with measures to enhance resilience, social cohesion and development. It continued to support peace

and security in the Lake Chad Basin, including through cooperation with the AU and support to the

regional multinational force. In the Great Lakes region, EU action remained guided by the EU Great

Lakes Strategy, combining diplomacy with support for regional peace initiatives linked to the conflict

in eastern Democratic Republic of the Congo.

Across the Horn of Africa, Central Africa, Southern Africa, the Indian Ocean and other subregions, the

EU pursued an integrated approach linking Global Gateway investments, humanitarian assistance,

security support, crisis response and long-term development, including support through the EUMAM

military mission in Mozambique and EPF assistance.

The EU and AU also stepped-up joint efforts on migration and mobility, building on legal pathways,

border management cooperation, and action against irregular migration, migrant smuggling and

trafficking in human beings, notably through the Continent-to-Continent Migration and Mobility

50 https://blueinvestafrica.eu/

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Dialogue. Cooperation on return, readmission and sustainable reintegration remained important.

Cooperation on a human rights-based approach to migration management also continued.

4.1.2. Implementation

Human development and inequalities

In 2025, the EU reinforced implementation of its human development agenda in Sub-Saharan Africa,

with notable progress across education, skills, youth and entrepreneurship. The Regional Teacher

Initiative for Africa continued in 27 countries, strengthening teacher training, management and

support. The Team Europe Initiative on Opportunity-driven Skills and Vocational Education and

Training in Africa (TEI OP-VET) moved into full implementation: its Technical Assistance Facility

became fully operational, regional exchanges expanded, and 11 projects were launched, particularly

in climate- and energy-related sectors.

Youth participation was further embedded through more than 50 Youth Sounding Boards and flagship

mobility schemes including Erasmus+, the Africa-Europe Youth Academy and the Intra-Africa

Academic Mobility Scheme. The Team Europe Initiative ‘Investing in Young Businesses in Africa’ also

scaled up, reaching eight co-funded regional programmes active in over 20 countries.

A further milestone in 2025 was the adoption of the new Study and Research in Africa action, which

broadened the Global Gateway approach to higher education. It aims to increase the attractiveness

of African higher education for mobile learners and strengthen universities’ links with innovation and

investment ecosystems in digital, climate, energy, transport, health and applied research.

The EU continued to support health care systems strengthening, health security through a One Health

approach, sexual and reproductive health and rights, digital health and local manufacturing of

vaccines, medicines and health technologies through the AU-EU Health Partnership Team Europe

Initiative. Support to social protection also expanded in 2025, notably through the Team Europe

initiative on social protection in Sub-Saharan Africa and the new regional Social Protection Systems

Strengthening Action, which will reinforce systems and support just and equitable transitions.

Green Deal

Implementation of the Green Deal agenda accelerated across energy, biodiversity, ocean governance,

forests, climate and water. Through the Africa-Europe Green Energy Initiative, the EU scaled up

support for grids and renewable energy investments, helping advance the energy transition and

regional power-market integration. This momentum was highlighted at the second Global Gateway

Forum in October 2025, while new flagships on regional electricity market integration and clean

cooking were designed to complement the Continental Energy Programme and an expanding blending

pipeline.

On biodiversity, 2025 marked major preparation for the second phase of NaturAfrica, with a new

investment comparable in scale to phase 1, ensuring continuity across most priority landscapes. The

forthcoming phase strengthens the initiative’s green economy and conflict-sensitivity dimensions

while maintaining support for biodiversity conservation, sustainable livelihoods and local resilience.

Ocean governance also gained further prominence in 2025 through reinforced regional and

continental programmes supporting the external dimension of the European Ocean Pact, launched at

the UN Ocean Conference in which the EU was very active and tabled more than 50 voluntary

commitments worth nearly EUR 1 billion. Many of these commitments cover Sub-Saharan Africa.

These efforts were complemented by support for the ratification and implementation of the BBNJ

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Agreement (Biodiversity Beyond national Jurisdiction), the entry into force of the WTO Agreement on

Fisheries Subsidies and additional work on ocean finance (e.g. FICS Ocean Coalition).

The EU stepped up Forest Partnerships and reached a major milestone on deforestation-free value

chains with the issuance of FLEGT licences in Ghana, making it the first country in Africa and the second

worldwide to do so. A decision was also taken to design a Forest Fund to support private-sector action

in priority countries.

The Team Europe Initiative on Climate Adaptation and Resilience continued to provide the overarching

framework for climate action, with emphasis on the links between mobility and climate change,

adaptation investments and climate-risk financing.

Under the TEI on transboundary water management in Africa, implementation advanced through

three newly approved interventions in major transboundary basins and increased blending operations

for access to water and sanitation across Sub-Saharan Africa.

Sustainable growth and jobs

Sub-Saharan Africa remained central to the Global Gateway Africa-Europe Investment Package, with

implementation accelerating in 2025. Progress was driven through support to twelve transport and

economic corridors, operationalisation of the African Continental Free Trade Area (AfCFTA), advances

under the Africa-Europe Green Energy Initiative (AEGEI), the Manufacturing and Access to Vaccines,

Medicines and Health Technologies in Africa (MAV+), and the Team Europe Initiative ‘Investing in

Young Businesses in Africa’.

A further milestone was the selection of five strategic critical raw material projects under the Critical

Raw Materials Act, all in Southern Africa, with concrete support mobilised in coordination with other

DG’s. Global Gateway investments also supported food-system resilience, including through

modernisation of the Douala-N’Djamena corridor and agricultural value chains and logistics platforms

along the Lobito Corridor.

Strategic partnerships also deepened in 2025. The first committee of the Angola-EU Sustainable

Investment Facilitation Agreement (SIFA – the first one in all SSA) took place in Luanda in January

2025, setting up concrete milestones to support sustainable investments in the country. Following the

March 2025 EU-South Africa Summit, the Global Gateway investment package with South Africa was

expanded through additional Member State contributions to nearly EUR 12 billion, underpinning the

Clean Trade and Investment Partnership signed in November 2025 and the Memorandum of

Understanding on sustainable minerals and metals signed the same day. In Namibia, the EU-Namibia

Strategic Partnership on Green Hydrogen and Critical Raw Materials delivered concrete results,

including Climate Investor 3-backed investments in HyIron and Zhero, the launch of the IGNITE TVET

programme on green technologies, operationalisation of the Critical Raw Materials pillar through a

Namibia country window under PanAfGeo+, and three support grants to civil society and media on

extractive industries and green industrialisation.

Financial implementation under Global Gateway also intensified. In 2025, 19 EFSD+ guarantee

agreements were signed for Sub-Saharan Africa with a combined capacity of EUR 1.9 billion, bringing

total signed and active guarantees to EUR 3.4 billion. Under the EIB Dedicated Windows, EUR 592

million was approved for eight operations supporting private investment, while 26 blending

operations worth around EUR 608 million were approved. Together, these operations are expected to

mobilise up to EUR 20.5 billion in investments, mainly in energy, transport, digital, health and

agriculture.

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Skills development (VET) projects have been launched in Côte d’Ivoire, Mozambique, Kenya,

Namibia, Senegal and Uganda, in close alignment with investment priorities. Business fora and the

Global Gateway Business Advisory Group Facility further supported investment-climate reforms and

business linkages, including at the AU-EU Business Forum in November 2025.

Digitalisation, science, technology, innovation and infrastructure

In 2025, the EU stepped up efforts to scale trusted connectivity, digital public infrastructure and

interoperable e-services, further positioning itself and its private sector as partners of reference.

Digital investments advanced across satellite connectivity, submarine and terrestrial networks,

including the EU-Africa-India Blue Raman corridor, as well as data centres and cloud services. These

investments contributed to Africa’s digital single market in support of AfCFTA.

A notable milestone was the launch of a new Digital Economy Package with Mozambique at the Global

Gateway Forum, combining regulatory support, cybersecurity, AI capacity-building and private-sector

development. The EU-Nigeria Digital Open Day in Brussels also helped mobilise private-sector interest

around Project Bridge for fibre-optic networks and other Team Europe Initiatives on e-governance,

digital innovation and skills. These initiatives exemplified the rollout of the EU Tech Business Offer

under the International Digital Strategy launched in 2025. EFSD+ guarantees, including the extension

of the ‘Africa Connected’ guarantee, underpinned further investments in broadband,

data infrastructure and digital innovation ecosystems, while gender considerations were

mainstreamed through the Team Europe Joint Initiative on Women’s Leadership in the public ICT

sector.

Science, research and space cooperation also made progress. The Africa Research Initiative for

Scientific Excellence – ARISE 2.0 – adopted in 2025, aims to strengthen the capabilities of African

researchers and research management systems, fostering innovative pan-African research that is

locally relevant and globally competitive. The second part of the Africa-EU Space Partnership

Programme, also adopted in 2025, will enhance the capacity of African organisations, policymakers,

practitioners and private-sector actors to use space technologies and operational information services

in support of sustainable development and the green transition, building on Copernicus and Galileo

programmes.

Migration and forced displacement

In line with SDG 10.7 and the external dimension of the Pact on Migration and Asylum, the EU

intensified engagement in 2025 with key countries of origin, transit and destination across Sub-

Saharan Africa. Actions focused on labour migration, voluntary return and reintegration, combating

migrant smuggling and trafficking in human beings, border management, protection and support for

refugees, internally displaced persons and host communities, and addressing root causes of irregular

migration.

A major implementation milestone was the full operationalisation of the migration partnership with

Mauritania. All actions under the EUR 210 million support package, including EUR 60 million under the

Flexible Mechanism for Migration and Forced Displacement, were contracted and moved into

implementation, contributing to stronger management of mixed movements and socioeconomic

opportunities in affected regions. The EU also scaled up support for voluntary returns within Africa,

responding to a growing number of returns and supporting medium-term reintegration assistance in

countries of origin. At the same time, the EU sustained a major humanitarian-development response

to the Sudan crisis and its regional spillover, allocating since 2023 EUR 225 million in development

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funding to Sudan itself, EUR 55 million to neighbouring host countries, and EUR 157 million in the Horn

of Africa to address drought, food insecurity and displacement.

In 2025, the EU also adopted guidelines and internal procedures to strengthen the human-rights-

based approach to migration and improve monitoring and handling of alleged violations.

Governance, peace and security

The EU maintained substantial engagement in 2025 to address fragility, conflict and insecurity in Sub-

Saharan Africa, while linking Global Gateway investments to the humanitarian-development-peace

nexus. Under the NDICI−Global Europe Rapid Response pillar, new crisis-response actions were

approved in Sudan, South Sudan, the Democratic Republic of the Congo, the Central African Republic,

Nigeria, Ethiopia, Mozambique and West Africa, supporting stabilisation, peace processes, dialogue,

social cohesion, counter-disinformation and accountability. Thematic actions reinforced conflict

prevention, mediation, transitional justice, early warning, Women, Peace and Security, mine action

and community-based stabilisation. Support to resilient border areas continued through the Peaceful

and Resilient Borderlands programmes, notably in coastal West Africa, the Horn of Africa and the

Great Lakes.

Security and defence cooperation with African partners was reinforced through Common Security and

Defence Policy missions and thematic tools. The EU Capacity Building Mission in Mali and the civilian

and military Security and Defence Initiative in support of West-African countries in the Gulf of Guinea

continued to support security-sector reform and border and maritime

security. Dedicated programmes further strengthened maritime security across the continent,

building the capacity of coastal states to protect ports, ensure safe navigation, and counter threats

including piracy and trafficking. This work covered key maritime zones from the Gulf of Guinea and

the Western Indian Ocean to the Red Sea and Horn of Africa. The EU UN Global Terrorist Threat Facility

provided targeted support to countries including Nigeria, Uganda and Benin, while launching a

workstream on the role of women in counter-terrorism, with Kenya and Uganda among pilot

countries. The Global Action on Cybercrime enhanced (GLACY-e) supported cybercrime reforms

aligned with the Budapest Convention in nine countries, enabling Rwanda and São Tomé and Príncipe

to join the Convention.

Action against illicit financial flows and organised crime also scaled up through a new EUR 46.5 million

programme that delivered over 200 activities in 37 countries in 2025. With support from the EU Global

Facility on anti-money laundering and countering the financing of terrorism, South Africa and

Mozambique successfully implemented their action plans and were removed from the Financial Action

Task Force grey list in October 2025.

The EU also continued support for democratic governance, electoral capacities and transitional justice

in partnership with the African Union and its Member States.

Food security and nutrition

Sub-Saharan Africa remained a priority region for EU action on developing a meaningful agri-food

agenda, in particular in specific areas affected by conflicts, climate change and economic shocks. In

2025, the EU continued supporting more resilient and sustainable food systems in complementarity

with Global Gateway investments in infrastructure and innovation, including irrigation in Somalia and

agricultural value chains linked to strategic corridors. Programmes such as DeSIRA+ promoted climate-

smart and agro-ecological innovation and sustainable value chains for cocoa, coffee and cashew. A

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significant new milestone was the approval of the continent-wide Fit for Markets programme to

support partner countries and the private sector on key value chains.

New commitments in support to Farmers Organisations and for the promotion of Geographic

Indications were highlighted at the 6th EU-AU Agriculture Minister Conference in June 2025, where

further alignment and synergy between the new EU Vision on Agriculture and Food and the

Comprehensive Africa Agriculture Development Plan (CAADP) were promoted.

Humanitarian food and nutrition assistance reached around EUR 600 million globally, with

Sudan, South Sudan and Mali among the contexts of highest concern. The Sudan regional response,

Horn of Africa allocation and continued support to the Sahel and Lake Chad Basin reflected the scale

of EU engagement in Sub-Saharan Africa. Nutrition remained central to humanitarian operations, and

Team Europe reaffirmed its leadership at the Nutrition for Growth summit by linking

humanitarian, development and climate action.

Case study on Corridors: Global Gateway flagship projects for sustainable economic development

1) TheLobito Corridor exemplifies the EU’s corridor-based Global Gateway approach to sustainable

growth, green transition and resilience. Linking Angola, Zambia and the Democratic Republic of Congo

to the Atlantic, the corridor combines support for intra-regional trade, climate-smart agriculture and

value chains, renewable energy and responsible critical raw-material value chains. In 2025, progress

continued in combining transport infrastructure with customs cooperation, enterprise support, skills

development, food security and environmental and social sustainability. The corridor

increasingly demonstrated how flagship investments can generate broader territorial development

effects, create jobs, increase local value addition and connect strategic raw materials and agricultural

production to regional and global markets on more sustainable terms.

On-going implementation and scale-up in 2025 was successful thanks to strong African ownership and

coordinated actions among the EU, African partners, financial institutions and private investors.

Investments in the corridor are underpinned by robust governance and local ownership to maximise

benefits for local communities.

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© European Union, 2026.

2) The Douala-N’Djamena corridor illustrates the practical impact of Global Gateway support to

landlocked and fragile economies through strategic connectivity investments. This flagship project

upgrades a key road artery linking Chad to Western and Central Africa, in a context where mobility

and trade depend heavily on the road network and where the corridor accounts for over 40% of the

Chad's population and GDP.

The intervention consists of the rehabilitation of 229 km of the 596 km long highway between

N'Djamena, Koutere and Moundou and the construction of a new 72m bridge in Moulkou, 4 weighing

stations and 6 resting parking areas as well as a significant technical assistance package, including

gender-related risks and opportunities analysis, road safety and climate resilience. EU different on-

going and foreseen programmes support interconnection of transport infrastructure and custom

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digitalisation and contribute to the agenda of trade integration and the improvement of

competitiveness in Central Africa.

Included in the Team Europe Initiative ‘Green Secondary Cities’, the projects around this corridor also

support renewable energy, agri-food value chains, TVET and job creation, and have been further

reinforced by the inauguration of an EU-funded bridge over the Logone River, opening a new official

trade point between Yagoua in Cameroon and Bongor in Chad and unlocking

additional cross-border economic opportunities

In 2025, continued modernisation efforts along this strategic route contributed to more efficient

transport and logistics, while also supporting food-system resilience and improved trade links

between Cameroon and Chad. As a key artery for landlocked areas, the corridor showed how

infrastructure investment can strengthen regional integration, facilitate the movement of goods,

improve access to markets and reinforce stability in vulnerable contexts.

© European Union

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4.1.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters

Sub-Saharan Africa received the largest share of EU humanitarian funding in 2025. Against a backdrop

of needs rising globally, the EU deployed over EUR 900 million of its EUR 2.5 billion humanitarian

budget to crises in the region, with a strong focus on food and nutrition, health, protection and

education in emergencies, as well as on preparedness to combat climate related disasters.

The conflict in Sudan further worsened, consolidating the country’s position as the world’s largest

humanitarian, displacement and hunger crisis. Around ten million people are forcibly displaced inside

the country, and famine has been confirmed in at least five areas, including parts of North Darfur and

South Kordofan. A staggering 19.5 million people, or two out of every five Sudanese, are experiencing

acute food insecurity (IPC Phase 3 or above). In 2025, the EU allocated over EUR 273 million to the

Sudan regional crisis, including more than EUR 161 million inside Sudan, to provide lifesaving

assistance and protection to affected populations in Sudan and neighbouring countries. The conflict

has brought massive violations of international humanitarian law and of human rights, including war

crimes and likely crimes against humanity. Alongside EU humanitarian aid funding, operational

support through ReliefEU was also provided through 14 EU Humanitarian Air Bridge flights that

transported nearly 1 200 tonnes of relief items, including 360 tonnes from EU stocks, and warehousing

and logistics support in neighbouring Chad to support response to Sudan’s crisis.

In South Sudan, where the presence and arrival of more than one million people fleeing the conflict in

neighbouring Sudan are exacerbating an already fragile situation, the EU provided humanitarian aid

totalling EUR 105 million. Due to recurring floods during rainy season and a situation marked by

increased violence and insecurity, over 70% of the population in South Sudan needed humanitarian

assistance in 2025.

In the Horn of Africa, dry conditions have returned yet again. This is only two years after a historic

drought which caused multiple failed rainy seasons and drove hunger and displacement. Around 14

million people across Kenya, Somalia, Ethiopia and Djibouti were food insecure, and nearly 10 million

forcibly displaced in 2025. The EU allocated EUR 158 million to respond to the most acute needs,

prioritising food and nutrition assistance, health, water and sanitation, and protection, whilst

systematically integrating disaster risk reduction and preparedness components into programming.

Violence has escalated further in the Democratic Republic of the Congo (DRC) and in the wider Great

Lakes region, notably due to a major offensive by the M23 armed group in the beginning of 2025,

taking over large parts of territory in eastern DRC, including the regional capitals of Goma and Bukavu.

Daily violations of human rights and international humanitarian law, including widespread gender-

based violence, continue to plight civilians. The EU response in the Great Lakes region amounted to

more than EUR 129 million in 2025, combined with several EU Humanitarian Air Bridge flights, and

strengthened humanitarian diplomacy and advocacy efforts. In this context, the EU continued to

support regional and international efforts aimed at de-escalation and a political solution, working

closely with African and international partner. EU-funded operations in eastern DRC supported

notably a holistic approach to gender-based violence, offering medical and psychosocial care

alongside emergency livelihood support for survivors and at-risk communities. EU funding also

addressed further operational priorities such as health responses and Raid Response Mechanisms.

In Central Sahel (Burkina Faso, Niger and Mali), the persistence of violence and armed conflicts has

had direct and dramatic consequences for the civilian population. It is jeopardizing gains in

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development, social cohesion, and welfare of the population. Insecurity also restricts humanitarian

access to populations in affected areas as well as the free movement of people and goods. In 2025,

the three countries accounted for 14.9 million people in need, 4.35 million forcibly displaced people

(+4.5% compared to 2024), around 6 million people in severely/acute food insecurity (phases 3 out of

5 levels), almost 630 000 children under five severely malnourished, over 8 000 schools and 670 health

centres closed or dysfunctional. The EU provided nearly EUR 103 million in humanitarian assistance,

with food security and nutrition as dominant sectors, while also supporting protection activities,

WASH, health and emergency education.

Since 2009, the Lake Chad Basin crisis is driven by a regional conflict affecting North-East Nigeria, the

Far North of Cameroon, Chad’s Lac region and Niger’s Diffa region. This is an acute and protracted

crisis. Significant protection threats and large-scale population movements characterise this complex

crisis. In 2025, there were 10.4 million people in need in the region, of which only 5.4 million targeted

under the reprioritised Humanitarian Response Plans. Over 3.4 million people were forcibly displaced

due to attacks by Non-State Armed Groups. Around 6.1 million people were severely/acutely food

insecure (phases 3-4) including over 4.6 million in North-East Nigeria alone. The EU’s multisector

emergency assistance for the people most exposed to the crisis neared to EUR 62 million in 2025

(specifically for these regions of Chad, Cameroon, Nigeria, and Niger), with most funding going to food

security, health /nutrition and protection.

Humanitarian needs remained acute across Southern Africa and the Indian Ocean, where recurrent

cyclones, floods and severe droughts continued to affect the region. The effect of the 2023/2024 El

Niño-induced drought continued to be felt in 2025 with some 20 million people still facing acute food

insecurity. The region was also affected by epidemics, notably cholera, measles and Mpox. Conflict

and violence have continued in northern Mozambique with 1.3 million displaced people over seven

years of conflict. The EU continued to provide funding for multi-sectoral live saving assistance (food

assistance, nutrition, health, water, sanitation and hygiene, education in emergencies, protection, and

rapid-response mechanisms) as well as funding for key activities to enable humanitarian operations

(transport, data, security). Humanitarian funding was also provided to respond to sudden and

unforeseen shocks such as floods, cyclones, displacements of population and cholera outbreaks, this

includes the use of emergency funding modalities under ReliefEU. Support to disaster preparedness

has also continued both at country and regional levels with the Southern African Development

Community.

Under the Union Civil Protection Mechanism (UCPM), assistance was offered to four Sub-Saharan

African countries in 2025. Three requests were related to epidemics, Ebola in DRC and Kenya, Mpox

in Sierra Leone, where EU Member States deployed health experts to support UN health coordination

structures. Additionally, Cape Verde received relief items, from five EU Member States following a

severe flood. The health-related crises benefited from coordinated use of both humanitarian aid and

the UCPM, which, together with ReliefEU, complemented efforts to prevent and respond to epidemic

outbreaks.

4.1.4. Crisis response and preparedness

In 2025, the EU further strengthened crisis response and preparedness in Sub-Saharan Africa through

NDICI–Global Europe’s rapid-response pillar.

Crisis response actions under NDICI–Global Europe funded swift measures in situations of

(post-)conflict, forced displacement and climate-related shocks, enabling flexible support in fragile

and crisis-affected settings. By the end of 2025, new interventions adopted during the year, including

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in Sudan, South Sudan, the Democratic Republic of the Congo, the Central African Republic, Nigeria

and across the Sahel and the Horn of Africa, focused on human security, stabilisation,

confidence-building, combating disinformation and supporting accountability and the prevention of

electoral violence.

The EU also maintained dedicated support for peace, stability and crisis preparedness through the

NDICI–Global Europe thematic programme on Peace, Stability and Conflict Prevention. Actions

strengthened global capacities for mine action, mediation, Women, Peace and Security, early warning

and foresight, human security, cybersecurity, maritime security, disinformation and the accountability

and prevention of electoral violence, with civil-society-led de-escalation efforts supported in countries

such as Guinea, Somalia and Gabon.

As an example, the EU–UN Global Terrorist Threat Facility delivered targeted counter-terrorism

support packages to Nigeria and Somalia, while child-reintegration initiatives in Nigeria and

anti-money-laundering and counter-terrorism-financing support in South Africa and Mozambique

strengthened resilience to violent extremism and terrorism financing. Similarly, cybersecurity

capacity-building enabled Rwanda and São Tomé and Príncipe to join the Budapest Convention,

enhancing protection against cyber-enabled threats.

In Sub-Saharan Africa, crisis response and preparedness increasingly relied on an integrated nexus

approach across external action instruments. In the Lake Chad Basin, the RESILAC2 programme

focused on human capital development, economic recovery and natural resource management to

address drivers of fragility and displacement. In the Democratic Republic of the Congo, Global Gateway

projects such as the Green Corridor were explicitly designed to apply a

humanitarian-development-peace nexus approach in a fragile and conflict-affected setting, including

the creation of a 500 000 km² community reserve along the Kivu–Kinshasa green corridor. In Somalia,

Global Gateway investments in irrigation systems supported food-system resilience in a context of

recurrent drought, conflict and displacement, while the modernisation of the Douala–N’Djamena

corridor and value-chain investments along the Lobito Corridor contributed to stabilisation and

crisis-risk reduction in Cameroon, Chad, Angola, Zambia and the Democratic Republic of the Congo.

Similarly, the EU dedicated EUR 81 million to the disaster-preparedness budget line in 2025, and one

in three humanitarian projects included a preparedness component, including in Sub-Saharan Africa.

Investment in early-warning and information systems for climate-related hazards continued,

supported by stable contributions to the early-warning component of the Copernicus Emergency

Management Service.

Finally, in the West African Gulf of Guinea, the European Peace Facility and Common Security and

Defence Policy actions, including the EU Security and Defence Initiative in support of West African

countries of the Gulf of Guinea, helped strengthen maritime security and crisis-response capacities.

4.2. Asia and the Pacific

4.2.1. East Asia and South Asia

4.2.1.1. Introduction (policy developments)

In 2025, the EU’s engagement with East Asia, South-East Asia and South Asia continued to deepen,

consolidating the comprehensive regional approach set out in the EU’s Strategy for the Indo-Pacific

and building on the political developments of 2024. The EU pursued a broad agenda encompassing

peace and security, connectivity and Global Gateway investments, trade and economic security,

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human rights and democracy, and multilateral cooperation, while managing the impact of Russia’s

war against Ukraine and instability in the Middle East on regional dynamics.

In South Asia, the EU maintained a strong focus on stability, democratic processes and human rights.

In Pakistan, cooperation remained framed by the Generalised Scheme of Preferences Plus (GSP+), with

continued monitoring of the implementation of the relevant human- and labour-rights conventions.

In Afghanistan, the EU preserved its presence to maintain technical channels of communication with

the Taliban de facto authorities, in line with the Council Conclusions on Afghanistan of September

2021(51) and March 2023(52), and to support the Afghan population both with humanitarian aid and

basic needs and livelihoods assistance, in particular women and girls, while enabling and sustaining

inclusive, Afghan-led dialogue and engagement processes in line with the ‘for women, by women’

approach and in close coordination with the United Nations-led political process. With India, the EU

further advanced the strategic partnership beyond the 2025 roadmap, including through sustained

negotiations on a free trade agreement and an agreement on geographical indications, and by using

the Trade and Technology Council to address key trade, digital and security issues. Engagement with

Bangladesh and Sri Lanka remained anchored in support for democratic reform processes and in

conditional market access under GSP+, alongside support for human rights, peacebuilding and social

cohesion.

Relations with China continued to be guided by the multifaceted approach of partner, competitor and

systemic rival. The EU sought to maintain constructive and stable relations with China while pursuing

four priorities: addressing the material support provided by Chinese companies to Russia’s war efforts

in Ukraine, rebalancing the economic and trade relationship, and ensuring reliable and predictable

supply chains, particularly in critical raw materials, as well as engaging on global challenges, in

particular climate change and environment. In Mongolia, the EU continued to support economic

diversification, renewable energy and forest partnerships, while interest to explore possible

cooperation on critical raw materials is high on the agenda.

Engagement with the Association of Southeast Asian Nations (ASEAN) and its member states was

further consolidated in 2025 under the EU-ASEAN Strategic Partnership and its 2023-2027 plan of

action. Following Laos’s ASEAN chairmanship and Thailand’s role as EU coordinator, the EU pursued

implementation of partner-country-led connectivity, digital and green-transition priorities, including

through Global Gateway investments and enhanced support for the ASEAN Power Grid to strengthen

sustainable regional energy integration. Free-trade agreement negotiations with several ASEAN

partners advanced, alongside a digital trade agreement with Singapore and close political and

human-rights dialogue, including continued pressure on Myanmar’s military regime and support for

the ASEAN Five-Point Consensus.

With Japan and the Republic of Korea, the EU built on the security and defence partnerships launched

in 2024, and also continued to deepen cooperation on economic security, resilient supply chains,

green and digital transitions and research and innovation, including negotiations on association to

Horizon Europe. Across East and South Asia, the EU used a ‘Team Europe’ approach and the Global

Gateway strategy to promote sustainable connectivity, high-standard infrastructure, and open and

rules-based regional order, in line with its values-based and multilateral vision for the Indo-Pacific.

51 https://data.consilium.europa.eu/doc/document/ST-11713-2021-REV-2/en/pdf 52 https://data.consilium.europa.eu/doc/document/ST-7264-2023-INIT/en/pdf

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4.2.1.2. Implementation

Human development and inequalities

In 2025, the EU promoted inclusive human development and reduced inequalities across East, South

and South-East Asia, with a focus on fragile and conflict affected contexts.

In Afghanistan, the EU maintained substantial support for basic needs and livelihoods through an EUR

80 million programme on economic stabilisation and community resilience and an additional EUR 3

million in support measures. In parallel, the EU reinforced its response to the Afghan displacement

crisis in Pakistan, Iran, Afghanistan and Central Asia by EUR 38.5 million.

In Myanmar, the EU committed EUR 29 million to sustain jobs, protect vulnerable communities and

ensure access to education, and released EUR 140 million previously suspended to respond to needs

arising from the 2025 earthquake and the protracted crisis.

In Bangladesh, cooperation on education, technical and vocational education and training and social

protection supported reforms and more inclusive services.

In Viet Nam, a new EUR 40 million technical and vocational education and training programme was

signed; in Cambodia, EUR 8 million strengthened the Partnership in Education for Green and Digital

Jobs and links with European companies; and in Laos, an additional EUR 15 million reinforced the

Partnership in Education and Skills for Inclusive and Green Growth.

Across the region, the EU supported access to health and to water and sanitation through blended

operations in Pakistan, the Philippines and Viet Nam.

Green Deal

Climate and environmental cooperation intensified under Global Gateway and the Neighbourhood,

Development and International Cooperation Instrument (Global Europe). The SWITCH Asia

Programme launched a new EUR 25 million call to scale up circular economy and sustainable

consumption and production initiatives in South and South-East Asia and continued technical

assistance for green public procurement, extended producer responsibility, business engagement,

circular climate finance and parliamentary dialogues.

The EU advanced Just Energy Transition Partnerships with Indonesia and Viet Nam: in Indonesia, it

committed EUR 11 million to the Energy Transition Facility and almost EUR 15 million to a new

cooperation facility for clean energy investments and policy reforms; in Viet Nam, it increased support

to the Energy Transition Facility by EUR 23 million, prepared a transport facility including railway

decarbonisation, continued implementation of the Sustainable Energy Transition Budget Support

Programme and advanced the Women led Green Partnership Programme. In South Asia, the Global

Gateway flagship ‘Energy Connectivity in South Asia’ supported the creation of a cross border

electricity market for regional integration and low carbon development.

In the Association of Southeast Asian Nations region (ASEAN), the EU positioned itself as a leading

development partner for the ASEAN Power Grid, with around EUR 12 million already supporting

project preparation, financing and regional planning and a substantial Team Europe package under

preparation, and committed EUR 30 million for two biodiversity programmes to scale up nature based

solutions and climate resilience. The EU promoted sustainable water and circular economy

investments through blended operations for climate resilient water, sanitation and hygiene in

Pakistan; projects in the Philippines and Viet Nam with Climate Investor 2; the Bakheng Water

Treatment Plant flagship in Cambodia, serving more than 2 million people; a new programme in

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Myanmar for climate resilient rural livelihoods; preparation of a climate resilience flagship in Thailand;

and circular economy actions in Viet Nam, including EUR 9 million in contracts. Engagement with

Thailand and Malaysia on the EU deforestation regulation intensified, with support to smallholders in

rubber and palm oil.

In addition, under the ASEAN Catalytic Green Finance Facility, three EU co financed projects (EUR 26

million) started in 2025 in Laos (sustainable agrifood systems), Indonesia (clean energy transition) and

Cambodia (climate resilient, water secure cities).

Finally, the EU committed EUR 34.5 million to deepen engagement with China on climate and

environmental challenges, focusing on water management and circular, sustainable practices and

supporting implementation of the 2030 Agenda and the Paris Agreement.

Sustainable growth and jobs

The first EU–Mongolia Business and Investment Forum gathered over 700 participants, including 70

European companies, and facilitated 160 business meetings. During the event, the Government and

the European Investment Bank signed a memorandum of understanding potentially unlocking up to

EUR 1 billion for Global Gateway renewable energy projects. Preparations started for the first EU–Viet

Nam Business and Investment Forum focusing on transport, energy and digital. The EU advanced

sustainable transport and connectivity, including support for maritime and land corridors such as the

National Road 2 flagship connecting Laos, Thailand and Viet Nam, and promoted investment climate

reforms. In South Asia, Global Gateway energy connectivity projects are expected to generate jobs in

regional grids and renewable energy installations.

The EU supported inclusive and sustainable agri food value chains. In Cambodia, the ASPIRE AT

investment package was launched to strengthen agriculture, food security, value chain

competitiveness and exports. In Laos, the Global Gateway flagship on Trade, Investment and

Connectivity in Agriculture and Forestry was reinforced to improve social protection and labour

standards in coffee, tea and forestry value chains. In Myanmar, an EUR 8 million action was approved

to promote decent jobs in the garment sector. In Indonesia, an EU Desk at the Ministry of Investment

was established in June 2025 to facilitate European foreign direct investment and accompany the

implementation of the trade agreement. In Malaysia, the EU-Malaysia Business Day highlighted the

EU as a key trade and investment partner and supported Global Gateway investments, including the

‘Port of Lumut Maritime Industrial City’ flagship moving beyond feasibility. At regional level, the EU

launched a EUR 4 million initiative on competition and subsidies control, a EUR 6 million initiative on

port safety and a EUR 10 million initiative on aviation cooperation.

Digitalisation, science, technology, innovation and infrastructure

A key Global Gateway milestone was the signing of the EU–Africa–India Digital Corridor Blue Raman

to reinforce resilient submarine cable connectivity and a secure, diversified global data architecture.

The EU adopted a EUR 42 million initiative to strengthen the use of Copernicus data in Asia Pacific,

with EUR 19.5 million for South and South-East Asia and Mongolia, and approved a EUR 3.5 million

extension of Asi@Connect to support digital connectivity of universities and research institutions in

least developed countries and their cooperation with Europe.

The EU deepened digital governance and cybersecurity cooperation. EU CyberNet expanded to the

Indo Pacific, connecting 571 experts and 123 organisations and supporting reforms on cybercrime and

cybersecurity aligned with the Budapest Convention. New actions with high income Asian countries

strengthened digital partnerships, regulatory dialogue, connectivity investments and economic

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security. In Indonesia, preparatory work continued on potential Global Gateway digital investments,

including Nusantara Smart City. At ASEAN level, SCOPE Digital and CopASEAN widened the use of

Copernicus, broadened digital cooperation and promoted the EU technology offer.

Migration and forced displacement

In South Asia, implementation of Sustainable Development Goal 10.7 and the external dimension of

the Pact on Migration and Asylum focused on the Afghan displacement crisis and protracted refugee

situations. 2.9 million Afghans were forcibly returned from Iran and Pakistan in 2025. Under the Team

Europe Initiative on Afghan displacement, the EU combined long term support for basic needs and

livelihoods in Afghanistan with increased assistance to host countries, migration and mobility

dialogues and support to border management in Bangladesh and Pakistan.

The EU allocated EUR 81 million from the regional budget to migration, including management,

protection and displacement tracking, with EUR 38.5 million in additional funding for the Afghan

displacement crisis. It also provided EUR 15 million for displaced Myanmar populations in Thailand

and increased the Rohingya Resilience Programme in Bangladesh by EUR 14 million, bringing support

in Cox’s Bazar to EUR 49 million. In addition to European Legal Gateway Office pilot in India, talent

partnerships with Bangladesh and Pakistan and programmes on decent work in sectors such as ready

made garments promoted regular migration and higher labour standards.

Governance, peace and security

The EU combined country specific and regional actions. It launched a EUR 5 million programme to

strengthen resilience to violent extremism in the digital space (EUR 4.4 million for South and South

East Asia) and adopted a regional programme in South Asia to reinforce cross border cooperation

against technology enabled crime and terrorism. In Pakistan, the EU pursued its engagement with the

government to prevent and counter violent extremism and terrorism. In the Philippines, the EU

continued its support to the Mindanao peace process and launched a EUR 16.5 million action on justice

sector reform. In Myanmar, it maintained support to local actors on conflict prevention, resolution

and de-escalation, including protection and lifesaving assistance. In Laos, the EU strengthened

citizens’ engagement and good governance with an additional EUR 1.5 million for civil society, national

and provincial assemblies and access to justice, and enhanced support to public finance management

reform focused on domestic resource mobilisation and transparency.

The EU reinforced cooperation with likeminded partners in the Indo Pacific on economic security,

disaster management and regulatory matters, including rapid support on the implementation of the

EU Waste Shipment Regulation in ASEAN countries, enhanced disaster management and civil

protection in Taiwan and progress on the roadmap for the EU–Australia strategic partnership on

critical raw materials. Additional actions strengthened digital partnerships, economic security

cooperation and cultural relations with partners such as Japan, Singapore and Thailand. In Viet Nam,

the second phase of the EU Justice and Legal Empowerment Programme began, aiming to improve

the rule of law and protection of rights.

Food security and nutrition

Food security and nutrition remained cross cutting priorities. Globally, the EU allocated around EUR

600 million to humanitarian food and nutrition assistance in 2025 and updated its Humanitarian Food

and Livelihood Assistance Policy, applying to crises in Afghanistan, Myanmar and the Rohingya

response. In Afghanistan, around 12.6 million people faced acute food insecurity; the EU supported

climate smart agriculture, sustainable livestock management and alternative livelihoods, particularly

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for farmers affected by the ban on poppy cultivation. In Myanmar, where more than 20 million people

depended on aid even before the March earthquake, EU humanitarian programmes combined food,

nutrition and livelihoods with health, protection and shelter. Through Global Gateway and the NDICI–

Global Europe Instrument, the EU complemented emergency assistance with investments in water,

sanitation and climate resilient infrastructure in Pakistan, the Philippines and Viet Nam, contributing

to sustainable food systems and resilience to climate induced shocks.

Case study

The Global Gateway flagship ‘Energy Connectivity in South Asia’ demonstrates how the EU links

sustainable growth, green transition and regional integration by supporting the development of a

cross-border electricity market. The initiative aims to improve reliability, affordability and

sustainability of power supply, unlock investment in transmission infrastructure and regulatory

harmonisation and facilitate integration of renewable energy. In 2025, preparatory work on priority

interconnections and market arrangements advanced with regional organisations, international

financial institutions and Team Europe partners, with expected benefits in job creation, lower energy

costs and reduced greenhouse gas emissions.

4.2.1.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

In 2025, East and South Asia remained among the regions most affected by protracted crises, conflict,

and natural hazards and climate induced disasters. Afghanistan remains one of the world’s most

severe humanitarian crises, with 22.9 million people in need of assistance. The restrictions imposed

by the Taliban government put continuous strain on humanitarian operations, particularly women’s

participation in aid delivery and access to humanitarian assistance. Amidst severe food insecurity and

lack of basic services, girls are denied access to school beyond primary level, affecting over 2.6 million

adolescent girls and driving negative coping strategies such as child labour and early or forced

marriage. The EU provided lifesaving assistance worth over EUR 163 million and funded Humanitarian

Air Bridge flights (EUHAB) delivering 390 tonnes of medical and nutritional items to humanitarian

organisations in Afghanistan, supporting key supply chain pipelines. In Afghanistan and other fragile

contexts, the EU pursues a nexus approach that combines immediate lifesaving assistance with longer-

term support for stability and resilience. For example, the EU’s basic needs and livelihoods assistance

complements its lifesaving response at border points by promoting inclusive economic recovery,

access to essential services, and the reintegration of returnees and internally displaced persons (IDPs),

while supporting host communities.

The Afghanistan crisis continues to affect neighbouring countries. Pakistan’s implementation of the

Illegal Foreigners Repatriation Plan and Iran’s increased forced returns of undocumented Afghans

have significantly worsened regional humanitarian pressures. More than 5.5 million Afghans have

returned from Pakistan and Iran since 2023, including around 3 million in 2025 alone, placing severe

strain on Afghanistan’s border points and already overstretched humanitarian response. These

movements risk further destabilising vulnerable communities.

Myanmar was the second most violent context worldwide and reported the highest number of

landmine casualties in 2024-20251. Almost 21 million people were in need of humanitarian assistance

before the 7.7-magnitude earthquake in March impacted an additional two million people. In 2025

the EU allocated EUR 55 million in humanitarian aid assistance to respond to conflict- and disaster

related needs, including protection, health, water and sanitation, food, shelter and education, sending

over 1 000 tonnes of aid via 16 EUHABs.

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In Bangladesh, Cox’s Bazar continued to host the world’s largest refugee camp, with more than 1.2

million Rohingya refugees, and vulnerable host communities. The presence of armed groups has

caused increased protection concerns including forced recruitment, violence and extortion. The EU

provided over EUR 34 million in humanitarian aid in 2025, targeting protection, food assistance,

health, water and sanitation, and education. The EU also addressed wider regional impact of the

Myanmar crisis, allocating EUR 4.5 million to address the urgent protection, food, health and shelter

needs of refugees in other countries of the region.

The 2025 cyclone season had a particularly severe impact on South and South-East Asia. Sri Lankan

authorities requested assistance following the landfall of Tropical Cyclone Ditwah in November 2025,

the worst disaster faced by the country since the 2004 Tsunami. In response, several EU Member

States offered in-kind assistance, notably shelters, a team of structural engineers to support damage

assessment, and 42 satellite maps provided by the Copernicus Emergency Management Service. The

EU allocated EUR 2.2 million in humanitarian aid to support humanitarian partners addressing

immediate needs.

Disaster Risk Management cooperation with the region gained further importance. Implementation

of the administrative arrangement on disaster risk management with the ASEAN Coordinating Centre

for Humanitarian Assistance (AHA Centre), signed in 2024, remained a key framework for

strengthening disaster risk management capacities in Southeast Asia. A similar arrangement with

India’s National Disaster Management Authority was developed in 2025.

4.2.1.4. Crisis response and preparedness

In 2025, the EU strengthened crisis response and preparedness in East and South Asia through an

integrated use of NDICI–Global Europe rapid-response actions, humanitarian aid, civil-protection tools

and foreign-policy instruments, in line with the humanitarian–development–peace nexus.

Rapid-response interventions focused on the most fragile contexts, notably Afghanistan, Myanmar,

Bangladesh, and on regional spillovers.

In Afghanistan, the EU continued to support the protection of the Afghan population, the prevention

of violence towards minorities and marginalised groups and seeked opportunities to promote social

accountability and inclusive dialogue. These actions complemented large-scale humanitarian aid

supporting basic services, resilient livelihoods and community-based protection, with a strong focus

on women’s and girls’ access to assistance under the ‘for women, by women’ approach. In Myanmar,

NDICI crisis-response tools were mobilised to address the consequences of intensified conflict and the

March 2025 earthquake, through support to local civil-society actors and help to preserve civic space.

In Bangladesh, the EU launched a new crisis response action to improve the physical and mental health

of those affected by the 2024 civil unrest and enhance their economic resilience and the social

cohesion of their communities. Regional actions strengthened resilience to violent extremism in the

digital space and cross-border cooperation against technology-enabled crime and terrorism. The EU

also strengthened environmental preparedness through targeted action on climate-related instability,

deforestation-free supply chains, and improved waste governance across South and Southeast Asia.

Additionally, the EU strengthened societal resilience and preparedness by addressing foreign

information manipulation and interference. Through support to independent media, professional

networks, fact-checking capacities and exchanges on monitoring and response, the EU helped build

more informed, resilient and secure information environments in the Indo-Pacific regionally as well as

in Taiwan.

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Preparedness and disaster-risk reduction were reinforced. Implementation of the administrative

arrangement on disaster management with ASEAN and cooperation with the ASEAN Coordinating

Centre for Humanitarian Assistance continued to enhance regional early-warning, contingency

planning and emergency-response coordination, while work advanced on an administrative

arrangement with India’s National Disaster Management Authority to deepen cooperation on

disaster-risk reduction, early-warning systems and civil-protection capacities. The Union Civil

Protection Mechanism and the new ReliefEU tool provided rapid logistical support and in-kind

assistance following emergencies such as the Myanmar earthquake, reinforcing national and regional

response capacities.

4.2.2. Central Asia

4.2.2.1. Introduction (policy developments)

In 2025, high-level dialogues, visits and cooperation between the EU and the countries of Central Asia

continued to intensify, confirming a shared commitment to deepen both bilateral and regional

partnerships. The first EU-Central Asia Summit was held in Samarkand, Uzbekistan, on 4 April 2025,

where the leaders of the two regions agreed to upgrade their relationship to a strategic partnership

and launched an EUR 12 billion Global Gateway investment package. Ahead of the Summit, European

Commissioner for International Partnerships Jozef Síkela also visited all five Central Asian countries to

boost prosperity and mobilising investments under the EU’s Global Gateway strategy. The EU High

Representative/Vice-President Kaja Kallas also travelled to the region for the EU Central Asia

Ministerial in March 2025 in Ashgabat. President of the European Council Costa visited Astana on 4

December 2025 on the occasion of the 10th anniversary of the Enhanced Partnership and Cooperation

Agreement (EPCA) with Kazakhstan.

Building on the ‘Joint Roadmap for Deepening Ties between the EU and Central Asia’ (2023)(53) and

the 2019 EU Strategy for Central Asia(54), work advanced across the five priority areas: inter-regional

dialogue and cooperation; trade, investment and economic ties; connectivity under the Global

Gateway strategy and the European Green Deal; common security challenges; and people-to-people

contacts.

Connectivity remained at the centre of the partnership. In 2025, the EU’s strategic approach to the

Black Sea(55) introduced a flagship Connectivity Agenda linking Europe with Central Asia through the

South Caucasus, aligning with the extended Trans Caspian Transport Corridor (TCTC), the EU’s

decarbonisation objectives and broader geopolitical considerations. The Agenda was endorsed at

ministerial level in Luxembourg on 20 October 2025, and further operationalised at the TCTC and

Connectivity Investors Forum in Tashkent in November 2025, which brought together stakeholders

around a comprehensive transport, trade, digital and energy ‘meta-study’ covering 60 existing studies

and 215 potential investment projects along the corridor.

These developments complemented the Global Gateway-driven partnership launched at the first EU-

Central Asia summit, where the EU had announced a Team Europe investment package focusing on

sustainable transport, critical raw materials, green energy and digital connectivity. The package

supports the Trans-Caspian Transport Corridor, sustainable critical mineral value chains,

Water/clean-energy/climate and satellite-internet initiatives, positioning Central Asia as a key partner

in a rules-based, sustainable connectivity network.

53 20231023 EU Roadmap Central Asia_EN.pdf 54 JOIN(2019) 9 55 JOIN(2025) 135

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Work also continued on trade and economic relations. The EU advanced the network of Enhanced

Partnership and Cooperation Agreements (EPCAs): an EPCA with Kyrgyzstan was signed in 2024,

negotiations with Tajikistan were completed in 2025 and an EPCA with Uzbekistan was signed on 24

October 2025, while the implementation of existing frameworks with Kazakhstan supported

regulatory approximation, investment and sectoral cooperation.

Addressing common security challenges remained a shared priority. The EU and Central Asian partners

intensified cooperation to tackle terrorism, extremism and radicalisation, illicit trafficking and other

transnational threats, including in the framework of the EU–Central Asia High-Level Political and

Security Dialogue and dedicated regional programmes. The regular EU–Central Asia Dialogue on Drugs

also took place in April 2025 and an EU–Central Asia Counterterrorism Dialogue was also established

at the Summit, with its first occurence in July 2025. Dialogue also continued on the implications of

Russia’s war of aggression against Ukraine, including efforts to prevent sanctions circumvention.

Human rights and the rule of law remained integral to the partnership. The EU held regular human

rights dialogues with all five Central Asian countries and engaged with national authorities and civil

society on governance reforms and fundamental freedoms.

4.2.2.2. Implementation

Human development and inequalities

In 2025, Central Asian countries benefited from regional and national actions in the sectors of

education/skills development, gender equality/fight against gender-based violence, support to civil

society, health/strengthening vaccination systems.

The implementation of the regional DARYA programme on skills development (EUR 10 million, 2022-

2027, implemented by the European Training Foundation), continued in the five Central Asian

countries with a particular focus on skills development in the Global Gateway priority area of

transport, in particular in Kazakhstan.

Central Asian civil society organisations continued benefitting from support at both national, through

thematic programmes for Civil Society and Democracy and Human Rights, and regional levels, through

the Civil Society Facility for Central Asia (EUR 4.5 million, implemented by the UNOPS, in partnership

with the Danish Institute for Human Rights, since 2024). With the support of the Facility, the annual

EU–Central Asia Civil Society Forum was organised in January 2025 in Almaty, Kazakhstan.

In addition, the contract for a new regional programme in Central Asia (EUR 5.3 million), called

CHANGE (Challenging Harmful Attitudes and Norms for Gender Equality), aimed at tackling gender-

based violence was signed in 2025. Implementation by a consortium of UN agencies (UNFPA, UN

Women, UNDP) will start in the beginning of 2026. This project has three interlinked objectives:

improving social norms, enhancing the role of civil society in fighting Gender-Based Violence and

empowering women economically.

Green Deal

Climate and environmental cooperation with Central Asia was anchored in the Global Gateway

strategy and the Team Europe Initiative (TEI) on water-energy-climate change in Central Asia. In 2025,

three regional EU-funded projects directly supporting the TEI continued being implemented, fostering

dialogue, skills and sustainable investments on water and energy challenges in Central Asia. Those

projects are: the Central Asia Water and Energy Programme (CAWEP) with the World Bank, and two

EU4SustainableCentralAsia projects on water and renewable energy promotion with the German

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Society for International Cooperation (GIZ). The first ever Steering Committee meeting of the TEI took

place in November 2025 in Tashkent. In addition, a project was started in Tajikistan aiming to reduce

electricity grid losses and strengthen the capacities of the national electricity network.

Sustainable growth and jobs

In November 2025, the third EU–Central Asia Economic Forum in Uzbekistan and the second

Trans-Caspian Transport Corridor and Connectivity Investors Forum reviewed progress including on

the investment climate. These events resulted in fourteen new contracts, including three new regional

programmes enhancing cooperation on critical raw materials (GROW CRM, SECURE CRM and

DATA4CRM). Two business missions were also organised to Central Asia in the framework of the CRM

Strategic Partnerships with Kazakhstan and Uzbekistan.

Engagement under the transport objective focused on scaling up investment along the Trans-Caspian

Corridor as a priority Global Gateway corridor, to improve regional connectivity and trade

opportunities. Supported investments are expected to support economic diversification, regional

integration and job creation, including in logistics, construction, energy and services.

Digitalisation, science, technology, innovation and infrastructure

In the framework of the infrastructure component of the Digital Connectivity TEI aimed at bridging

the digital divide in Central Asia, 328 villages have been connected to the Internet through satellite,

while negotiations have been on-going in other Central Asian countries, particularly in Uzbekistan. The

soft connectivity component comprising all interventions needed to create an enabling policy and

regulatory framework to safely deploy satellite connectivity, implemented by a consortium of EU

Member State agencies (Estonia, Finland, France, Latvia, Lithuania), led by the French agency Expertise

France, started in January 2025 with a budget of EUR 20 million.

The EU also adopted a EUR 42 million initiative to strengthen the use of Copernicus data in Asia-Pacific,

supporting evidence-based decision-making. Out of the total amount, EUR 12.5 million are dedicated

to Central Asia.

Furthermore, a regional EUR 5 million programme was launched in Asia-Pacific to support Asian

countries’ resilience to violent extremism in the digital space, including Central Asia.

Migration and forced displacement

In 2025 the EU approved a EUR 38.5 million top-up package under the Asia-Pacific regional envelope

for migration, forced displacement and mobility, to strengthen its programmes on data collection and

sharing (DATA, implemented by IOM) as well as border management and fight against smuggling of

migrants and trafficking in human beings (PROTECT, implemented by ICMPD and UNODC). The EU also

supports the REMIT project on remittances in Central Asia implemented by IFAD (EUR 6 million).

Governance, peace and security

At the beginning of 2025, the Council appointed a new EU Special Representatives for Central Asia, to

continue strengthening political engagement and the EU’s capacity to support regional stability and

cooperation.

Under its regional security cooperation with Central Asia, the EU launched new phases of the Border

Management Programme in Central Asia (BOMCA 11, EUR 12 million) and the Central Asia Drug Action

Programme (CADAP 8, EUR 18 million). Both programmes have been refocused considering rising

threats, with BOMCA now concentrating fully on border security, cross-border cooperation and

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improving living conditions in border communities, and CADAP combining continued support for drug

demand reduction with strengthened action against drug trafficking and drug supply. These are

complemented by interventions under the Crisis Response funding stream, the EU retained a specific

focus on supporting Tajikistan in protecting its border with Afghanistan, which remains highly sensitive

from a security perspective for the entire region and beyond.

Food security and nutrition

No dedicated Central Asia -specific action was reported under this heading in 2025; relevant issues

were addressed through broader regional, thematic, or global instruments where applicable.

Case study

The Trans-Caspian Transport Corridor (TCTC) illustrates the EU’s Global Gateway approach to

sustainable, rules-based connectivity in Central Asia. In 2024, a pledge of EUR 10 billion was made on

behalf of the EU and participating international finance institutions, and by November 2025, about

25% of this pledge had materialised as specific contracts related to TCTC related infrastructure

projects. At the TCTC and Connectivity Investors Forum in November 2025, contracts were signed

related to the modernisation of Aktau Port in Kazakhstan, one of the key logistics hubs on the Caspian

Sea, and the Karabalta–Chaldovar road section in Kyrgyzstan leading to the border with Kazakhstan.

In addition, contracts were signed with the World Bank and the EBRD to finance further preparatory

studies for hard infrastructure projects along the corridor, as well as a contract with GIZ and Expertise

France to provide capacity building to the Governments of Central Asia related to transport and trade

facilitation.

The TCTC is supported as a backbone for sustainable trade and transport between Europe and Central

Asia, with a view to reducing transit times, improving reliability and fostering regional integration. It

shows that corridor-based approaches can deliver significant economic and connectivity gains when

accompanied by customs and regulatory reforms, strong environmental and social safeguards and

close coordination among the EU, partner governments, financial institutions and the private sector.

4.2.2.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

Central Asia Central Asia remains highly exposed to disasters driven by the combined effects of climate

change and environmental degradation. Erratic rainfall patterns, extreme temperatures, floods,

landslides and earthquakes continue to pose risks to livelihoods and infrastructure. In 2025, the EU’s

humanitarian support to the region focused primarily on disaster-risk reduction, preparedness and

targeted emergency response, building on the approach developed in the previous year.

Building on its partnership with the International Federation of Red Cross and Red Crescent Societies,

the EU and its partners continued to strengthen early-warning systems, contingency planning and

community-level preparedness. The focus remained on climate- and weather-related hazards and on

reinforcing the capacities of national Red Cross and Red Crescent societies to respond rapidly to

localised emergencies.

4.2.2.4. Crisis response and preparedness

Central Asian partners benefitted from regional actions under the NDICI–Global Europe thematic

programme on Stability Peace and Conflict Prevention, notably the network of chemical, biological,

radiological and nuclear (CBRN) Centres of Excellence and related risk-mitigation programmes, which

strengthen national systems’ capacity to anticipate, detect and manage complex crises.

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The Crisis Response and Foreign Policy Needs instruments also remained available to address potential

spillovers from regional instability and to support economic- and energy-security measures linked to

the Trans-Caspian connectivity agenda. In particular, Crisis Response provided rapid support to

increase cross-border cooperation in crisis preparedness and response in support of border

communities in Tajikistan and Kyrgyzstan. Under Foreign Policy Needs, information resilience across

Central Asia was strengthened, through the empowerment of media, civil society, and educators to

build a more informed and engaged public by promoting reliable, locally relevant content and

countering propaganda

Disaster-risk reduction and preparedness were central priorities too. Building on earlier support to the

International Federation of Red Cross and Red Crescent Societies in Kyrgyzstan and Tajikistan for

evidence-based disaster and emergency preparedness, work in 2025 continued to reinforce

early-warning systems, contingency planning and anticipatory approaches for floods, landslides and

other climate-related hazards, including in follow-up to the severe flooding in Kazakhstan in 2024.

Risk-informed planning increasingly accompanied Global Gateway investments in transport, energy

and digital corridors to ensure that new infrastructure is resilient to climate and seismic risks.

While Central Asian countries did not activate the Union Civil Protection Mechanism in 2025, the

mechanism and related technical-assistance facilities provided a framework for joint risk assessment,

scenario planning and capacity-building, complementing EU thematic programmes on CBRN, cyber

and hybrid threats and contributing to enhanced regional preparedness.

4.2.3. The Pacific

4.2.3.1. Introduction (policy developments)

In 2025, the Pacific Island countries (PICs) remained key partners for the EU in climate action and

green transition, ocean governance and environmental protection, as well as important allies in

defending the international rules-based order with the United Nations at its core. EU engagement

continued to be framed by the EU Strategy for Cooperation in the Indo-Pacific, which underlines the

region’s strategic relevance for Europe’s prosperity and security, and by the Global Gateway strategy,

providing a transparent, values-based offer for sustainable, resilient and cooperative infrastructure

development. EU priorities stayed closely aligned with the 2050 Strategy for the Blue Pacific Continent,

particularly on economic development, climate change, the ocean and environment, people,

technology and connectivity, and peace and security.

The EU is a dialogue partner in the Pacific Islands Forum (PIF), the region’s main political organisation,

and a permanent observer in the Pacific Community (SPC), the principal technical and scientific

regional body. In 2025, high-level political contacts with PIF members were maintained, including

ministerial and senior-official meetings and thematic dialogues on climate, the ocean, sustainable

finance and security, reinforcing the EU’s long-standing role as a reliable partner for the Blue Pacific.

The Samoa Agreement, which entered into force with a dedicated Pacific Protocol, continued to

provide the overarching legal and political framework for a stronger region-to-region partnership. The

Protocol’s shared priorities – including climate and disaster resilience, sustainable ocean-based

economies, human development and good governance – guided the programming of EU support and

Team Europe Initiatives in the Pacific.

In 2025, the EU announced that, under Global Gateway, it would invest close to EUR 300 million in the

Pacific in climate resilience, renewable energy, sustainable agriculture, water and sanitation, and

governance and connectivity, positioning the Green-Blue Alliance as a flagship for the region.

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To increase the impact of its action, the EU continued to work in close synergy with Australia and New

Zealand, two like-minded partners with deep historical, political and economic ties to the Pacific.

Political dialogue with both countries covered responses to Russia’s war of aggression against Ukraine,

security in the Indo-Pacific and non-traditional security threats such as cyber, counter-terrorism and

foreign information manipulation, as well as intensified cooperation on climate action and resilient

supply chains.

4.2.3.2. Implementation

Human development and inequalities

In 2025, EU cooperation in the Pacific continued to tackle structural inequalities, focusing on ending

gender-based violence. Phase II of the regional programme ‘Pacific Partnership to End Violence

Against Women and Girls’ (EUR 8.25 million) advanced in its first full year, building on Phase I and the

Spotlight Initiative.

Green Deal

Implementation of the planned Team Europe Initiative ‘Green-Blue Alliance for the Pacific and

Timor-Leste’ progressed, bringing together Global Gateway investments and other EU and EU Member

States’ instruments to promote equal and inclusive societies, fundamental values, human

development and peace and security across 18 partner countries and overseas countries and

territories.

Climate resilience, the ocean and biodiversity remained central. The Pacific EU Marine Partnership

(EUR 20 million) strengthened ocean governance, sustainable coastal resource management and local

expertise. The Kiwa Initiative (EU contribution EUR 19.9 million), ClimSA (EUR 9 million), Pacific

BioScapes (EUR 12 million) and PacWaste Plus (EUR 16.5 million) promoted nature-based solutions,

sustainable marine and coastal management, and improved waste and pollution control, including

marine litter.

In Timor-Leste, Technical Assistance to Support Carbon Farming delivered a Climate Change Base Law,

a draft carbon farming policy and a national agroforestry strategy. In Papua New Guinea, the Forestry,

Climate Change and Biodiversity programme (EUR 54.7 million) supported transparency reporting,

safeguards to reduce emissions from deforestation and forest degradation, and participation in global

climate and biodiversity processes. The Pacific Rural Electrification Programme (EUR 15 million) was

rolled out in Fiji, the Federated States of Micronesia, Kiribati, Papua New Guinea, Solomon Islands and

Vanuatu.

Sustainable growth and jobs

Global Gateway engagement expanded. The EU–Pacific Business Forum, held in Fiji in September

2025, gathered public and private stakeholders from Pacific Island countries and territories, like

minded partners and EU Member States. The European Commissioner for International Partnerships

Josef Síkela announced nearly EUR 300 million of investments in climate resilience, sustainable

growth, transport, digital connectivity, water and renewable energy.

The new Pacific Trade and Sustainable Development programme was launched, combining trade

policy with support to Pacific small and medium-sized enterprises to expand exports within the region

and to Europe. In Timor-Leste, the Agroforestry Skills for Development project (EUR 5.9 million)

further developed skills and value chains in coconut, cocoa and vanilla. In Papua New Guinea, the

STREIT programme increased rural incomes through support to cocoa, vanilla and fisheries value

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chains, and by investing in rural roads, airstrips and renewable energy to improve access to services,

jobs and markets.

Digitalisation, science, technology, innovation and infrastructure

The Pacific Digital Economy Programme (EU contribution EUR 8 million), with Australia and New

Zealand, promotes inclusive digital economies in 11 Pacific Island countries by strengthening digital

and financial literacy among rural communities, women and micro, small and medium-sized

enterprises.

In Timor-Leste, the budget support operation ‘Partnership for Public Financial Management and

Digital Transition’ was launched and a first fixed tranche of EUR 1 million was disbursed, supporting

interconnectivity of public financial management systems and links between central and local

administration.

The EU invested in safer and more inclusive public infrastructure and services through two education

and resilience initiatives with UNICEF (EUR 28.2 million), upgrading schools to withstand cyclones,

remain operational during crises and serve as safe spaces. In Vanuatu, schools damaged by Cyclone

Lola are being rebuilt to function as learning spaces and emergency shelters.

At Asia-Pacific level, a EUR 42 million initiative, including EUR 10 million for the Pacific, was adopted

to strengthen capacities to use Copernicus satellite data for spatial planning and climate change

mitigation, providing tools for risk informed decision making under the Global Gateway digital and

green offer.

Migration and Forced Displacement

Migration and forced displacement were not a primary focus of EU geographic programmes in 2025.

The region benefited indirectly from global policy developments on safe and regular migration,

protection and human rights based approaches, which will guide future cooperation on labour

mobility, climate induced displacement and diaspora engagement.

Governance, peace and security

The EU supported democratic governance and resilient institutions. In Solomon Islands, a project (EUR

5.5 million) made electoral processes more inclusive, informed and transparent. At Indo Pacific level,

the CRIMARIO II project and related initiatives enhanced maritime security cooperation through the

IORIS information sharing platform. A new security cooperation action deepened EU partnerships on

maritime security, counter terrorism, cyber and hybrid threats and foreign information manipulation

and interference.

A call for proposals for civil society organisations in the Pacific was completed to strengthen their

capacities in project implementation, advocacy, policy analysis and monitoring of government

programmes. In Timor-Leste, the Sector Reform Performance Contract for Budget Support ‘Supporting

Programme to Deconcentration and Decentralisation process in Timor-Leste’ concluded after five

years.

Food security and nutrition

The STODAS project (EUR 10 million) promotes integrated food systems, nutrition and environmental

sustainability in Fiji, Samoa and Solomon Islands by reinforcing policies, agricultural production and

agribusiness. In Timor-Leste, the project ‘Strengthening Social Inclusion and Nutrition in Timor-Leste’

selected 24 schools for construction of standardised kitchens and 59 farmer groups to supply schools,

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and began updating the National Health Sector Nutrition Strategic Plan and the Specific Nutrition

Intervention Package.

Case study

The blending project ‘Greening of the Port in Rabaul’ in Papua New Guinea, co-financed by the French

Development Agency, the European Investment Bank and the EU, will strengthen the country’s

regional role in trade and logistics and is expected to spur private investment in sustainable processing

of cocoa, fisheries products and timber.

The EU is also supporting Kiribati to develop a new port on Kiritimati Island to enable the eventual

relocation of the capital threatened by climate change. A EUR 2.5 million feasibility study, financed by

the EU and implemented by the European Investment Bank, will guide the design of the multipurpose

port, with the EU ready to support construction to boost economic development and trade through

greater private sector involvement

4.2.3.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

In 2025, EU humanitarian support in the Pacific focused on strengthening resilience to climate

displacement. In Fiji and Vanuatu, as part of a regional project, the EU maintained a watch

function, closely monitoring disasters and maintaining readiness to activate support should the

impact of a disaster overwhelm national capacities.

In the Philippines island of Mindanao, conflict and natural hazards-induced disasters has fuelled

displacement. The EU allocated EUR 2 million in humanitarian aid to address humanitarian needs,

particularly through a Rapid Response Mechanism. The EU also invested EUR 4 million in Disaster

Preparedness efforts, notably to support the development of shock-responsive social protection and

anticipatory action. Multiple disasters, at times concurrent, affected the Philippines in 2025, severely

straining local capacities. The EU allocated over EUR 3.7 million in ReliefEU emergency funding to

respond to the compound impact of multiple cyclones, floods and earthquakes.

4.2.3.4. Crisis response and preparedness

In 2025, the EU’s crisis response and preparedness in the Pacific focused on strengthening resilience

to climate- and disaster-related shocks within a broader Green-Blue Alliance approach. Support was

framed by the Samoa Agreement’s Pacific Protocol and aligned with the 2050 Strategy for the Blue

Pacific Continent, prioritising climate and disaster resilience, sustainable ocean-based economies and

good governance.

Under NDICI–Global Europe and Global Gateway, new investments of almost EUR 300 million were

announced for climate resilience, renewable energy, sustainable agriculture, water and sanitation,

and transport, with the explicit objective of making infrastructure and services more resilient to

cyclones, floods and sea-level rise. Regional initiatives such as the Kiwa Initiative, Pacific BioScapes

and PacWaste Plus integrated disaster-risk reduction, nature-based solutions and ecosystem-based

adaptation into national and regional planning, thereby reducing future crisis risks.

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4.3. The Americas and the Caribbean

4.3.1. The Americas

4.3.1.1. Introduction (policy developments)

In 2025, relations between the EU and the Americas were marked by a qualitative deepening of the

bi-regional partnership. The main milestone was the fourth CELAC–EU (Community of Latin American

& Caribbean States) Summit, held on 9 November 2025 in Santa Marta, Colombia, and accompanied

by a LAC–EU Civil Society Forum and a LAC–EU Business Forum. Leaders took stock of progress since

the 2023 Brussels summit, reaffirmed the strategic importance of the partnership between the EU and

CELAC, and provided political steering for the next phase of cooperation, including under the EU–LAC

Global Gateway Investment Agenda (GGIA).

Leaders demonstrated their commitment to maintaining a strong bi-regional relationship, despite a

challenging geopolitical context, by adopting a Joint Declaration, alongside two complementary

declarations on the Alliance for Citizen Security and the Pact on Care. Discussions focused on key

priorities for both regions, including the defence of multilateralism, trade and investment, the green

and digital transitions, social inclusion, and cooperation on citizen security, justice, and the fight

against transnational organised crime. The Summit sent a clear message of continuity and partnership,

highlighting the shared commitment of both regions to addressing common challenges and advancing

cooperation.

High-level political and business engagement underpinned the strategic importance and dynamism of

the partnership between the EU and Latin America and the Caribbean (LAC). Key milestones in the

EU’s external relations included the signature of the agreement with MERCOSUR, as well as the first

Association Councils with Central America and Chile, further deepening political and economic ties.

Four Election Observation Missions were also deployed. President von der Leyen’s participation in

CARICOM meetings and the first EU–Brazil Investment Forum signalled a more strategic dialogue with

key partners and highlighted the importance of sustainable investment, climate action and digital

cooperation.

Implementation of the GGIA progressed from its launch phase to a scale-up stage. By 2025, more than

80 projects were advancing, confirming the EU’s position as a leading investor in LAC and showcasing

the strength of the ‘Team Europe’ approach. Flagship regional initiatives on regional electricity

integration, a high-performance computing network and satellite connectivity initiatives under the

EU–LAC Digital Alliance and the valorisation of sargassum in the Caribbean illustrated how Global

Gateway is supporting green transition, digital transformation and innovation through high-quality,

sustainable investments in critical sectors.

4.3.1.2. Implementation

Human development and inequalities

In 2025, the EU stepped up cooperation with LAC to reduce inequalities and strengthen social

cohesion, building on the GGIA. The EU worked with partner countries to promote inclusive access to

basic services, social protection and skills, including through global actions on education, health and

social protection in which LAC countries participate, and through Team Europe Initiatives such as

Inclusive Societies in LAC. Investments in sustainable water and sanitation under Global Gateway

contributed to more resilient services, for example through blended operations in Mexico, Ecuador

and the Dominican Republic that improve water access and climate-resilient infrastructure. Work on

youth participation and gender equality – including youth dialogues on Global Gateway and the

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continued implementation of the Gender Action Plan III – helped ensure that new investments address

structural inequalities and intersectional discrimination.

Green Deal

Green transition cooperation focused on climate action, biodiversity and circular economy. The EU

supported circular-economy initiatives and deforestation-free value chains across more than 80

countries, including in LAC, helping reduce environmental pressures and align trade with the European

Green Deal. Through the Team Europe Initiative on deforestation-free value chains and the DeSIRA+

initiative, the EU backed agroforestry and sustainable value chains for cocoa, coffee and cashew,

which are particularly relevant in several American countries. Global Gateway also underpinned work

on critical raw materials, where the EU supported environmentally and socially sustainable supply

chains and began connecting priority projects in partner regions with off-takers and finance via a

dedicated CRM Facility. At global level, the EU announced close to EUR 160 million in new biodiversity

initiatives at the UN biodiversity conference in Cali, Colombia, further signalling the importance of LAC

for global biodiversity protection.

Sustainable growth and jobs

Under the GGIA, the EU reinforced its position as a leading investor in LAC, with more than 80 projects

advancing and a strong emphasis on mobilising private capital under high environmental, social and

governance standards. In 2025, the Latin America and Caribbean Investment Facility (LACIF) was

replenished with EUR 45 million, and ten contribution agreements were signed for EUR 32 million,

which are expected to mobilise about EUR 512 million in investments in sectors such as sustainable

energy, climate, digitalisation, water and sanitation and urban development, with further projects

approved for contracting in 2026. A service contract to provide technical assistance on financial

modelling for GGIA for EUR 3.6 million was also signed.

Sustainable transport was a particular focus, with support for clean buses and railways in Costa Rica

and Panama, rail and metro systems in Colombia and Mexico, and port developments in Chile, Mexico

and the Caribbean, thereby fostering green connectivity, jobs and regional integration. Across the

GGIA portfolio, technical assistance helped improve the investment climate and develop

sustainable-finance frameworks, including work on green-bond issuance and taxonomies through the

Sustainable Finance Advisory Hub.

Digitalisation, science, technology, innovation and infrastructure

Digital cooperation advanced under the EU–LAC Digital Alliance, a core Global Gateway pillar for the

Americas. By early 2025, the Alliance encompassed 51 members, with dialogues on e-governance,

data governance, connectivity, artificial intelligence and supercomputing producing concrete

operational follow-up. Preparations continued for the extension of the BELLA cable in 2025 to Peru,

Costa Rica, Honduras, El Salvador and Guatemala, with further expansion to the Caribbean planned,

to provide high-capacity, secure digital connectivity. The EU–LAC Digital Accelerator generated over

100 new joint ventures involving 1 500 companies from 86 countries, fostering innovation

partnerships between European and LAC firms. New digital flagship projects agreed in 2025 – including

an EU–LAC supercomputing network for AI and the ‘Condosat’ satellite-connectivity initiative –

strengthened the scientific and technological ties between the two regions and expanded access to

advanced digital infrastructure.

Migration and Forced Displacement

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The EU’s contribution focused on fragility and displacement, with Haiti featuring as one of six

territories of highest concern worldwide for acute food insecurity and violence, and Venezuela

remaining one of the world’s largest, underfunded humanitarian crises. In Haiti, resilience

programming under NDICI–Global Europe’s rapid-response resilience line supported measures in

situations of (post-)conflict, forced displacement and climate-related shocks, complementing

substantial humanitarian food, nutrition and protection assistance. In and around Venezuela, where

basic services have collapsed and 58.6% of the population faces extreme poverty, the EU acted as the

leading humanitarian donor in 2025, providing over EUR 52 million – around 43% of total humanitarian

funding – in a context where the UN humanitarian response plan was severely underfunded. The EU

also continued to work with LAC partners on disaster-preparedness and risk-reduction through the

EU–LAC Memorandum of Understanding on disaster preparedness, helping address climate-related

drivers of displacement and migration. The regional programme EUROFRONT supported several

countries in South America to improve human rights based and efficient border management.

Governance, peace and security

Rapid-response resilience funding under NDICI–Global Europe helped address fragility and

governance challenges in Haiti, where violence, political instability and climate shocks intersect. The

thematic global programme on Peace, Stability and Conflict Prevention delivered results in the

Americas on organised crime, the rule of law and maritime security, including joint operations

disrupting illicit trafficking by container, air and sea and the development of prosecution guides

integrating human-rights standards in Ecuador and Trinidad and Tobago, and maritime-security

training for Latin American and Caribbean partners, covering 55 countries and 200 agencies.

Regional programmes in Latin America and the Caribbean, such as EL PACCTO promoting regional

cooperation across law enforcement system with hundreds of multi-country actions and COPOLAD

supporting comprehensive and balanced drugs policies in the region, reinforced not only local

capacities, but also sustainable regional cooperation platforms that produced important joint

operational results against drug trafficking, illicit firearms, trafficking in human beings, crimes against

the environment and illicit trade of cultural goods.

Election-observation missions in Ecuador, Bolivia, Guyana and Honduras as well as targeted actions to

prevent the risk of electoral violence in Bolivia supported credible, transparent electoral processes

and helped mitigate tensions, with the mission in Honduras extended due to delays in verifying

electronically transmitted results. At the same time, actions on disinformation and foreign information

manipulation and interference, strategic communication and public diplomacy strengthened the

capacity of EU Delegations across the Americas to counter hybrid threats and support democratic

resilience.

Food security and nutrition

Food-security challenges in the Americas were addressed through a mix of humanitarian assistance

and longer-term food-system investments. Globally, around EUR 600 million in humanitarian funding

was allocated to food and nutrition assistance in 2025, with Haiti among the six contexts of highest

concern. In Venezuela, EU-funded operations responded to widespread food insecurity driven by

economic collapse and failing basic services. At the same time, the EU supported more sustainable

and resilient agrifood systems in LAC through Global Gateway-aligned initiatives on climate-smart

agriculture and value chains, including DeSIRA+ and the Team Europe Initiative on deforestation-free

value chains, which promote agroforestry, soil-health improvements and market access for cocoa,

coffee and other key products.

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Case study

The EU–LAC Global Gateway Investment Agenda (GGIA) illustrates how Global Gateway is being

deployed as a comprehensive approach in the Americas.

Two years after its launch, the GGIA had over 80 projects advancing in implementation in 2025,

covering renewable energy, digital transformation, human development and sustainable transport. It

aims to mobilise up to EUR 45 billion in investments for LAC by 2027 through a combination of EU

budget resources, Member State contributions and development-finance institutions, with a strong

focus on high-quality, sustainable investments in critical and strategic sectors.

Projects include regional electricity integration, sustainable transport systems, the EU–LAC

supercomputing network for AI, the Condosat satellite-connectivity initiative and the Sargassum

Initiative in the Caribbean, which supports national roadmaps to turn sargassum influxes into

economic opportunities.

4.3.1.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

In 2025, the Americas continued to face complex, overlapping crises. Venezuela remained one of the

largest forgotten crises worldwide, with 58.6% of the population in extreme poverty and around 70%

lacking regular access to health services and clean water. The humanitarian response in the country

has been severely affected by the current deep fiscal crisis plaguing the sector. Only 20% of the 2025

UN Humanitarian Response Plan was funded, making it the third-least funded plan globally. The EU

acted as leading donor, providing over EUR 52 million, around 43% of total humanitarian funding, in

support of life-saving assistance for the most vulnerable.

The Venezuelan crisis continues to impact neighbouring countries. The humanitarian situation in

Colombia deteriorated in 2025 due to the combined effects of the spill over from the Venezuelan crisis

as well as internal conflict, widespread violence and the country’s exposure to hydrometeorological

hazards. As a result of this, 13.6 million people needed humanitarian assistance, of which 9.1 million

from conflict and disasters and 4.5 million refugees and migrants. To respond to these needs, the EU

allocated EUR 30.7 million in humanitarian assistance to help victims of the armed conflict and climate-

related disasters as well as to respond to the needs of refugees and migrants.

In Ecuador, the unprecedented surge in violence started in 2024 continued to generate humanitarian

consequences in 2025. The violence directly affected over 2.6 million people who required

humanitarian assistance. To respond to these needs as well as to help the communities affected by

climate-related events, the EU allocated EUR 8.2 million in 2025.

Central America and Mexico combine a high exposure to violence, natural hazards, poverty and

inequality, in a context of continuing regional displacement. In 2025, more than 4.6 million people in

Guatemala, Honduras and El Salvador, and over half a million refugees and migrants within the region,

needed humanitarian assistance. The EU’s response of EUR 29 million focused on addressing the

critical needs of the most vulnerable resident and displaced populations through multisectoral

assistance and protection, as well as on disaster preparedness. At regional level, implementation of

the EU–LAC Memorandum of Understanding on disaster preparedness and disaster risk management

became a central pillar of external preparedness work, strengthening cooperation on climate

adaptation, resilient infrastructure, early warning systems and integrated risk management across

Latin America and the Caribbean.

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Under the Union Civil Protection Mechanism (UCPM), Ecuador, via a request from the United Nations

Joint Environmental Unit (JEU) requested technical support to cope with an oil spill emergency. A team

of UCPM experts was deployed to provide technical support. Additionally, the European Maritime

Service Agency (EMSA) provided high-resolution satellite imagery on the oil spill damage extent.

4.3.1.4. Crisis response and preparedness

In 2025, the EU strengthened crisis response and preparedness in the Americas through a

complementary use of NDICI–Global Europe rapid-response tools, humanitarian aid and

civil-protection instruments. Support was provided to strengthen cooperation against transnational

drug trafficking in Ecuador and to advance and consolidate peacebuilding efforts in Colombia.

Funding under NDICI–Global Europe thematic programme on Peace, Stability and Conflict Prevention

also enabled the implementation of activities aimed at preventing youth recruitment as well as

addressing the impact of criminal activities in the Amazon along the Colombia-Brazil border.

Preparedness and risk-reduction were reinforced at regional level. Implementation of the EU–LAC

Memorandum of Understanding on disaster preparedness and disaster risk management provided a

key framework for cooperation on multi-hazard risk assessment, early-warning systems, resilient

infrastructure and civil-protection capacities across Latin America and the Caribbean. A new EU

humanitarian stockpile established in Barbados in 2025 improved pre-positioning and rapid

deployment of relief items for tropical cyclones, floods and earthquakes in the Caribbean and

neighbouring regions.

4.3.2. The Caribbean

4.3.2.1. Introduction (policy developments)

In 2025, cooperation between the EU and Caribbean partners deepened within the framework of the

Samoa Agreement and its Caribbean Protocol, anchoring political dialogue and development

cooperation in a renewed, long-term partnership. This strategic alliance was strongly reaffirmed at

the fourth CELAC–EU Summit in Santa Marta, Colombia, and the concurrent separate EU-Caribbean

Leaders' meeting. Set against a volatile geopolitical landscape marked by growing global divisions,

these high-level engagements allowed both regions to join forces to defend their core values −

including democracy, human rights, multilateralism, and the international rules-based order − while

demonstrating the EU's unwavering commitment to its Caribbean partners. Leaders advanced the EU–

LAC Global Gateway Investment Agenda (GGIA) and engaged in substantive political exchanges on

preserving the Caribbean as a "Zone of Peace," reforming the international financial architecture to

secure concessional financing for small island developing states (SIDS), and promoting inclusive trade,

digital connectivity, and human development.

4.3.2.2. Implementation

Human development and inequalities

In 2025, EU support in the Caribbean continued to address structural vulnerabilities of small island

developing states by integrating social and equality dimensions into Global Gateway investments

under the GGIA. Social components in programmes on climate resilience, water and sanitation and

sustainable transport aimed to improve access to essential services and reduce inequalities, including

for women, young people and remote communities. Caribbean partners also benefited from global

actions on education, health, gender equality and social protection, which help strengthen inclusive

public policies and basic services in contexts exposed to recurrent shocks.

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Green Deal

Climate resilience and the green and blue transitions remained central to cooperation. Through the

GGIA and Global Gateway, the Caribbean benefited from advancing investments in sustainable

transport, renewable energy, resilient water and sanitation and circular-economy solutions, tailored

to hurricane- and sea-level-rise-prone coastal and urban areas. Regional programmes on resilient

infrastructure, disaster-risk reduction and sustainable ocean-based economies supported the

implementation of national climate strategies and regional frameworks, complementing global

initiatives on biodiversity and deforestation-free value chains.

Sustainable growth and jobs

Sustainable, inclusive growth was pursued by promoting diversified, climate-resilient economies.

Blended-finance operations under regional investment facilities helped mobilise private capital for

green infrastructure, energy and services, while technical assistance supported improvements in the

business environment and sustainable-finance frameworks. Global Gateway operations in sectors

such as sustainable transport and ports, climate-resilient water and sanitation and circular economy

are expected to generate decent jobs in construction, operation and maintenance, as well as in

tourism and services, though more systematic monitoring of employment and distributional effects

remains a key lesson for future programming.

Digitalisation, science, technology, innovation and infrastructure

Digital transformation was further integrated into EU–Caribbean cooperation under the EU–LAC

Digital Alliance. Caribbean partners drew on regional initiatives to improve secure connectivity,

promote e-governance and build regulatory and institutional capacity in areas such as data protection,

cybersecurity and digital markets. Planned expansion of high-capacity connectivity and satellite

initiatives under the Alliance aims to enhance redundancy and resilience of digital infrastructure in

hurricane-prone islands.

Migration and forced displacement

Migration and displacement in the Caribbean are closely linked to recurrent disasters, climate change

and socioeconomic fragility. While most migration-specific EU funding in 2025 targeted other regions,

Caribbean partners benefited indirectly from global policy work on safe and regular migration,

disaster-displacement and human-rights-based approaches to border management and returns. At

the same time, disaster-risk-reduction, climate-resilience and livelihood programmes contributed to

tackling climate-related drivers of displacement and irregular movements.

Governance, peace and security

EU action supported democratic governance and institutional resilience in the Caribbean, in close

coordination with regional organisations. Under thematic programmes on peace, stability and conflict

prevention, the EU contributed to tackling organised crime and strengthening the criminal-justice

chain in the wider Americas, including maritime-security cooperation and specialised training for

law-enforcement and prosecution services. Regional disaster-risk-management cooperation under

the EU–LAC Memorandum of Understanding on disaster preparedness and disaster risk management

also helped improve risk-informed planning, coordination and civil-protection capacities.

Food security and nutrition

Food-security challenges in the Caribbean stem from high import dependence, exposure to

climate-induced shocks and disasters, and vulnerabilities in small domestic markets. EU support

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combined humanitarian food and nutrition assistance in the most affected contexts with longer-term

investments in resilient food systems and sustainable blue and green economies. Regional

programmes promoting sustainable agriculture, fisheries and circular-economy approaches, together

with climate-resilient infrastructure under Global Gateway, contributed to strengthening local

production, reducing losses and improving resilience to hurricanes and droughts.

Case study

Under the EU–LAC GGIA, the Caribbean is beginning to benefit from a pipeline of Global Gateway

investments that combine sustainable connectivity with climate resilience.

Projects under preparation and implementation include climate-resilient transport and port

infrastructure and water and sanitation systems designed to withstand hurricanes and flooding,

thereby safeguarding economic activity and essential services during disasters.

These investments are complemented by strengthened regional disaster-preparedness cooperation

under the EU–LAC Memorandum of Understanding and by the establishment of an EU humanitarian

stockpile in Barbados, which improves pre-positioning and rapid deployment of relief items for

Caribbean crises.

Global Gateway investments coupled with regional preparedness and risk-reduction measures can

significantly reduce the human and economic impact of disasters and enhance the overall resilience

of Caribbean societies.

4.3.2.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

Haiti’s humanitarian crisis deteriorated in 2025. Gangs control over 80% of the capital Port-au-Prince

and has gained far-reaching influence in many other parts of the country, severely limiting the

population’s access to basic services and forcing 1.3 million people to flee their homes. In 2025, 6

million people required humanitarian assistance. In total, the EU allocated EUR 42.3 million to provide

multisectoral assistance and to violence-affected people in Haiti, including through the organisation

of a an EU humanitarian air bridge (EUHAB) operation.

To reinforce readiness in the Caribbean and the wider Americas, a new EU humanitarian stockpile was

established in Barbados in 2025, improving pre‑positioning and rapid deployment of relief items such

as shelter materials, WASH kits and other essential non‑food items for tropical cyclones, floods,

earthquakes and other hazards.

Under the UCPM, two countries in the Caribbean, Jamaica and Cuba, requested assistance following

the severe impact caused by Hurricane Melissa in October 2025. In response to the request by

Jamaica, EU Member States provided assistance in the form of relief items and the deployment of an

Emergency Medical Team, which treated 469 patients. Additionally, the Copernicus Emergency

Management Service was activated to support the damage assessment in Jamaica, Haiti, and Cuba.

4.3.2.4. Crisis response and preparedness

In 2025, the EU’s crisis response and preparedness in the Caribbean focused on strengthening

resilience to increasingly frequent and intense climate- and weather-related shocks, while ensuring

swift, coordinated reaction when disasters struck. Under NDICI–Global Europe’s rapid-response and

resilience pillar, actions supported measures in situations of (post-)crisis, displacement and

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climate-related shocks and complemented Global Gateway investments in resilient infrastructure,

water and sanitation and energy systems.

Crisis response funding supported swift measures in situations of conflict, forced displacement and

climate-related shocks, notably in Haiti, where governance collapse, armed violence and high

exposure to hurricanes and earthquakes required closely coordinated humanitarian, development

and peacebuilding interventions. These actions aimed to improve citizens’ security, reinforce local

governance and community resilience, and address drivers of food insecurity and displacement in a

humanitarian–development–peace nexus approach.

Preparedness and risk reduction were reinforced at regional level through implementation of the EU–

LAC Memorandum of Understanding on disaster preparedness and disaster risk management, which

provided the main framework for cooperation on multi-hazard risk assessment, early-warning

systems, contingency planning and civil-protection capacities across Latin America and the Caribbean.

4.4. EU Enlargement (Western Balkans, Türkiye, Ukraine, Republic of Moldova and

Georgia)

4.4.1. Introduction (policy developments)

In 2025, enlargement remained a central, strategic priority for the European Union, seen as an

investment in peace, security and prosperity on the continent and beyond. The year built on the major

decisions taken in 2023-2024, when accession negotiations were opened with Ukraine and the

Republic of Moldova and a new momentum was injected into the process with the Western Balkans

and other partners.

The 2025 Enlargement Package confirmed progress in a number of areas, while underlining that the

process remains strictly merit-based and conditional on reforms in the rule of law, democracy,

fundamental rights and economic governance. In the Western Balkans, the package noted steady

advancement in most partners, with Montenegro and Albania moving closer to the objective of

completing negotiations. Most Western Balkan partners continued to fully align with the EUCommon

Foreign and Security Policy (CFSP), including with EU statements and restrictive measures against

Russia and Belarus. These included Albania, Bosnia and Herzegovina, Montenegro, North Macedonia,

as well as Kosovo who aligned voluntarily. Cooperation in the area of security and defence increased

with key partners. A new Security and Defence Dialogue with Montenegro was launched on 2

December 2025 and first Security and Defence Dialogues with Albania and North Macedonia were

held, in April and May, respectively, under their Security and Defence Partnerships with the EU. The

mandate of the EU Rule of Law Mission in Kosovo (EULEX Kosovo) was extended in June 2025.

Furthermore, on 31 October 2025, the United Nations Security Council extended the mandate of

Operation EUFOR Althea in Bosnia and Herzegovina for another 12 months. The EU provided

significant support to Western Balkan partners to counter foreign interference and disinformation,

cyber and other hybrid threats. The EU Special Representative (EUSR) for the Belgrade-Pristina

Dialogue held more than a hundred bilateral meetings with the parties and convened several formal

rounds of Chief Negotiators’ meetings.

For Ukraine and the Republic of Moldova, 2025 was the first full year of accession negotiations.

Following the launch of intergovernmental conferences in June 2024, the bilateral screening was

completed in record time, and the European Commission assessed all clusters are ready to be opened.

All documents were transmitted to Council before the end of the year, ensuring the Council is in a

position to formally open all clusters once an agreement is found among EU Member States. In

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parallel, gradual sectoral integration continued. For Ukraine, the EU advanced steps to enable full

integration into the European energy market by early 2027, alongside further gas market integration,

contingent on accelerated reforms. The EU also mobilised more than EUR 2.3 billion to improve

transport connections between the EU, Ukraine and the Republic of Moldova and supported

modernised trade regimes with both countries.

For the Republic of Moldova, accession negotiations opened in June 2024 were accompanied by a

deepening of the political and security partnership. The EU–Moldova Security and Defence

Partnership, signed in 2024, continued to be implemented to help the Republic of Moldova build-up

its democratic resilience, including through the support provided by the EU Partnership Mission in the

Republic of Moldova. In parallel, the Regulation establishing the Reform and Growth Facility entered

into force in 2025. The Facility supports a Growth Plan built on a Reform Agenda of socio-economic

and fundamental reforms designed to accelerate growth and socio-economic convergence with the

EU. In 2025, EUR 314.9 million was released under the Facility against the achievement of four steps

and the pre-financing. A two-year Comprehensive Strategy for Energy Independence and Resilience,

backed by a EUR 250 million package and an additional EUR 30 million in emergency gas assistance for

the Transnistrian region, helped the Republic of Moldova phase out dependence on Russian energy

and support integration into the EU energy market. A first EU–Moldova Summit underlined the

deepening partnership.

In Georgia, rapid democratic backsliding continued and the accession process remained de facto

halted, as concluded by the European Council already in June, October and December 2024. The 2025

Enlargement Package reiterated that the course of action taken by the Georgian authorities is taking

the country further away from the EU path with an unprecedented level of backsliding on EU accession

reforms. High-level political contacts and direct financial assistance to the authorities remained

suspended, while support to Georgian citizens delivered via civil society organisations and other non-

state actors continued.

Türkiye continued to be a candidate country and a partner of strategic importance for the EU, despite

accession negotiations remaining at a standstill since 2018. Engagement progressed in a phased,

proportionate and reversible manner, implementing the recommendations of the Joint

Communication on EU–Türkiye relations from November 2023, based on COREPER’s guidance, as

tasked by the European Council conclusions in April 2024. High-level dialogues on the economy, trade,

migration and security, climate and research and innovation resumed or continued in 2025. A new

multiannual bilateral programme for 2025-2027 committed EUR 311 million to support civil society,

fundamental rights, people-to-people contacts, climate, energy, transport, competitiveness,

employment and social policy, complemented by a further EUR 313.3 million for rural development,

civil society under the Civil Society Facility and cross-border cooperation. The EU and Türkiye began

cooperating in the cross-regional Connectivity Agenda. Türkiye continued to host more than 2.5

million refugees with substantial EU support, while a ‘visa cascade’ system was introduced in July 2025

for bona fide travellers. EFSD+ guarantees under the Türkiye Investment Platform continued to

support investment, while the EIB re-engagement in the country was initiated with two operations of

EUR 100 million each to support SMEs in the areas of renewable energy, energy efficiency and green

industry.

Financially, the EU consolidated the use of dedicated instruments to underpin enlargement. The

Reform and Growth Facility for the Western Balkans – a EUR 6 billion component of the Growth Plan

for the Western Balkans – moved into full implementation, with Reform Agendas approved for all six

partners and first disbursements linked to progress on country-specific reform agendas, gradual

integration into parts of the single market and conditions related to democratic standards and regional

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cooperation, including the normalisation of relations between Serbia and Kosovo. The Instrument for

Pre-Accession Assistance (IPA III) continued to support reforms, institution-building and investments,

increasingly using performance-based and blending modalities.

Against the background of Russia’s ongoing war of aggression, the Ukraine Facility – endowed with

EUR 50 billion for 2024-2027 – remained the core instrument supporting Ukraine’s short-term

recovery and medium-term reconstruction and modernisation, in line with its EU path. Under pillar I,

45 reform and investment steps were positively assessed in 2025, triggering four payments to

Ukraine’s state budget totalling EUR 10.7 billion; since the Facility’s launch, cumulative disbursements

have reached EUR 26.8 billion. The Facility also subsidised borrowing costs for the first time, freeing

EUR 321 million in fiscal space. Under pillar II, up to EUR 5.5 billion in guarantee cover and blended

finance was allocated in 2025; in total, up to EUR 6.9 billion of EU contributions and guarantees –

around 70% of the Ukraine Investment Framework’s capacity – is expected to mobilise approximately

EUR 21.8 billion in public and private investment, including in critical and dual-use sectors and

integration into EU value chains.

In parallel, the European Peace Facility, an off-budget EU instrument, continued to provide

instrumental support to the Armed Forces of Ukraine in its fight against the Russian full-scale invasion,

worth EUR 5 774 million under its assistance measures pillar. In 2025, its financial ceiling was also

topped by EUR 1 933 million in extraordinary revenues from immobilised Russian sovereign assets

earmarked for the armed forces of Ukraine. In addition, the Council adopted several assistance

measures under the European Peace Facility to strengthen the defence capabilities of the armed

forces of several partner countries, including Montenegro, Albania, North Macedonia, and the

Republic of Moldova.

4.4.2. Implementation

Human development and inequalities

In 2025, enlargement partners continued to use EU support to strengthen human capital, social

inclusion and equality as core pillars of their European path. In the Western Balkans, EU-funded

education, skills and youth measures supported closer integration with EU policies. The College of

Europe campus in Tirana, financed by the EU, further consolidated its role as a regional hub for

expertise on EU integration and public policies, reinforcing a new generation of practitioners

committed to European values. Employment and inclusion remained priorities: over 830 individuals

in Bosnia and Herzegovina were successfully employed after participating in targeted training,

upskilling, and reskilling programmes. Targeted support addressed vulnerable groups and the

reduction of inequalities. In the Western Balkans and Türkiye, the regional initiatives ‘Roma

Integration (Phase III)’, implemented jointly with the Council of Europe, and ‘Support to Roma

Entrepreneurship (Phase II)’ advanced Roma inclusion, supporting governments’ commitments under

the Berlin Process and Chapter 23 (anti-discrimination) and reducing income inequality through better

access to the labour market, entrepreneurship and finance. In Ukraine, the EU and UN Women

launched the Gender Equality Facility to support a gender-responsive recovery and European

integration, strengthening alignment with the EU gender equality acquis and the implementation of

the 2022-2030 State Strategy for Equal Rights.

Erasmus+ helped print over 1.5 million textbooks for Ukrainian schools, since the start of the war,

ensuring continuity of learning, and more than 33 000 Ukrainians have participated in mobility

programmes since 2022. These measures help to preserve human capital and sustain Ukraine’s

integration with the European Education Area and youth networks, even in wartime.

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Interreg NEXT Programmes operating in western part of Ukraine supported tangible cross-border

investments in healthcare, social services and education, including the modernisation of hospitals,

social care facilities and schools in Ukraine. These projects strengthened local resilience by improving

service provision and institutional cooperation in border regions.

In Georgia, backsliding on fundamental values led to a further recalibration of EU engagement;

assistance directly benefiting state authorities was put on hold, while support to to Georgian citizens

continued, including in areas such as youth, education and social inclusion.

Green Deal

The green transition remained central to EU cooperation with enlargement partners and is

increasingly framed as pre-accession acquis alignment and a driver of energy security. In the Western

Balkans and Türkiye, the EU supported decarbonisation and resilience of energy systems, water

management and biodiversity, including through regional actions such as EU4 Energy Transition. This

programme helps 20 cities and towns in the Western Balkans and Türkiye design and implement local

energy and climate action plans, with a focus on energy efficiency and renewable energy solutions.

The EU co-funded flagship green investments through the Western Balkans Investment Framework: a

132 megawatt wind farm in Bosnia and Herzegovina, displacing nearly 447 000 tonnes of CO2 a year;

Kosovo's first large-scale solar plant, increasing solar capacity tenfold to 110 megawatt; a wastewater

treatment plant for Skopje in North Macedonia, ending untreated discharge into the cross-border

Vardar river; and the rehabilitation of 120 km of railway in Albania along the extension of the Trans-

European Transport Core Network.

In the Republic of Moldova and Ukraine, regional programmes such as EU4Environment promoted

circular economy practices, green public procurement and resource efficient production.

Interreg NEXT programmes with participation of Ukraine and Moldova support cross-border

environmental initiatives through joint projects on water management, pollution reduction,

ecosystem protection, disaster risk management and climate resilience for local communities.

Georgia remained involved in several green initiatives, for instance on sustainable agriculture, while

direct financial assistance to the authorities was suspended.

Sustainable growth and jobs

Sustainable, inclusive growth in enlargement partners was fostered through trade integration, support

to small and medium-sized enterprises (SMEs), regional value chains and the mobilisation of

investment in line with EU standards. The Growth Plan for the Western Balkans, including a EUR 6

billion Reform and Growth Facility for 2024-2027, moved into full implementation. Reform Agendas

were adopted for most Western Balkan partners and pre-financing was disbursed to Albania, North

Macedonia and Serbia, with Bosnia and Herzegovina adopting its agenda in September 2025.

Disbursements are tied to progress on reforms, macro-economic stability and gradual integration into

parts of the EU single market, reinforcing a merit-based approach.

EU-funded initiatives across the Western Balkans illustrated the focus on local growth, innovation and

decent work: in Albania, the ‘EU 4 Labour Market Inclusion’ project (EUR 3 million) strengthened

inclusive employment across 19 municipalities; in North Macedonia, under the Reform and Growth

Facility, labour and market inspections increased by at least 20% and 15%, respectively; and in Serbia,

the ANTARES centre of excellence turned the BioSense Institute into a European hub for digital

agriculture, with its AgroSense platform now used by over 15 000 farmers.

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For Ukraine, the investment pillar of the Ukraine Facility, the Ukraine Investment Framework,

mobilised EU guarantees and blended finance to unlock investment for SMEs, municipalities and

state-owned enterprises, accelerating reconstruction and economic recovery. In the Republic of

Moldova, EU cooperation supported SME development, the creation of a Fund for Entrepreneurship

and Economic Growth and improvements in statistical and spatial-data systems, all of which are

important for evidence-based economic policy.

Digitalisation, science, technology, innovation and infrastructure

Digital transformation is increasingly central to enlargement, both as a driver of competitiveness and

as part of acquis alignment. In the Western Balkans, the common regional market agenda integrates

digital elements such as digital skills, secure and sustainable digital infrastructures including roaming,

digital transformation of businesses and digital public services. To support this, in 2025 the

Commission adopted the EU4Green and Digital Transition programme, allocating EUR 33 million to

accelerate the digital transition across the Western Balkans. The programme supports connectivity,

including 5G deployment and the expansion of WiFi4WB, as well as the digitalisation of public services

and businesses. Concrete results also included support for digital skills through the modernisation of

13 educational facilities in Montenegro and the establishment of 684 Smart ICT Labs in 627 schools in

Albania, improving learning conditions and enhancing students’ digital and programming skills.

In Ukraine and the Republic of Moldova, EU support advanced the digital transition through the

EU4Digital Facility, which accelerated regulatory alignment, supported both countries’ integration into

the EU roaming area, and developed an Artificial Intelligence tool to facilitate acquis transposition. Its

EU4Digital Academy also strengthened digital skills through free online training.

Migration and forced displacement

Migration and forced displacement remained highly salient for enlargement partners, particularly in

the Western Balkans, Türkiye and the Eastern Neighbourhood. EU action was guided by the external

dimension of the Pact on Migration and Asylum, the EU Action Plan on the Western Balkans and

regional partnerships. The EU continued to support partner and candidate countries in improving their

migration management and aligning with EU legislation, including the Migration and Asylum Pact and

the Schengen acquis, as well as ongoing reforms such as an enhanced return policy. This was

complemented by closer cooperation with EU agencies in the security and migration field and by the

progressive integration of partner countries into EU security and migration initiatives, reinforcing their

preparedness and resilience.

Türkiye remained a key partner in managing migration flows and hosting refugees from Syria and other

crisis regions. EU support, complementing longer-term measures financed via the Facility for Refugees

in Türkiye and its follow-up, continued to provide basic services, education, health and social cohesion

support to refugees and host communities, as well as reinforcing border and migration management

capacities. In 2025, the EU adopted a EUR 1.3 billion package to ensure the continuation of basic

needs, education, health, voluntary returns to Syria and border management support. In the Republic

of Moldova, which hosts around 130 000 Ukrainian refugees, the EU supported the establishment and

capacity-building of the General Inspectorate for Migration, with particular attention to gender-based

violence and trafficking risks.

In Ukraine itself, the war continued to displace millions. By 2025, 12.7 million people were in need of

humanitarian assistance and nearly 3.4 million were internally displaced, with the EU providing EUR

220 million in humanitarian assistance in 2025 and EUR 1.2 billion since 2022, focusing on

multi-purpose cash, protection and winter assistance.

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Governance, peace and security

IPA III and NDICI-Global Europe support continued to strengthen judicial independence, fight

corruption and organised crime, enhance electoral processes and reinforce fundamental rights and

good governance in Western Balkan partners and Türkiye and the Eastern Partnership. Examples

include an EU-funded Twinning project in North Macedonia on strengthening institutional capacities

to address cultural heritage and environmental crimes, which supported national authorities in

aligning their practices with EU standards and best practices, and the Istanbul anti-Corruption Action

Plan in Eastern Partnership countries.

In the Republic of Moldova and Ukraine, the EU’s crisis response made available resources to

strengthen national efforts in countering Foreign Information Manipulation and Interference. This

included support to establishing or consolidating competent government authorities and to help

detect and counter foreign information manipulation and interference (FIMI) in a whole-of society

approach. Further to this, Crisis Response in the Republic of Moldova and in Common Foreign and

Security aligned partner countries of the Western Balkans was provided to rapidly build national

cybersecurity capacities in the face of increased threat levels and repeated attacks on national digital

infrastructure.

Security and defence cooperation deepened with several partners. Security and Defence Partnerships

with Albania and North Macedonia, and with the Republic of Moldova, provided frameworks for closer

cooperation on resilience, hybrid threats and security-sector reform. The European Peace Facility

(EPF) delivered equipment and support for armed forces and security actors in enlargement and

neighbourhood partners, including Ukraine, Western Balkan partners, and the Republic of Moldova.

The EU launched several cyber capacity building projects, including a regional project Cyber Balkans

(running in 2023-2026 with a budget of EUR 5 million) that aims to enhance the cyber resilience of

Western Balkan partners in compliance with EU acquis. The Cybersecurity Rapid Response project,

(until September 2025, EUR 1.8 million) covered Albania, Montenegro, and North Macedonia.

Civilian Common Security and Defence Policy (CSDP) missions and EU special representatives

contributed to conflict prevention and stability. EU rule-of-law, advisory and partnership missions in

Kosovo, Ukraine and the Republic of Moldova supported security-sector reform, rule-of-law

institutions, investigation and prosecution of international crimes, and countering hybrid threats while

the EU monitoring mission in Georgia continued to promote stabilisation and confidence-building. An

EU Special Representative for the Belgrade–Pristina Dialogue worked to advance normalisation

between Kosovo and Serbia, a key condition under the Growth Plan for the Western Balkans. Thematic

peace and stability actions supported reconciliation in Bosnia and Herzegovina and dialogue in the

South Caucasus.

Food security and nutrition

Food security and nutrition in enlargement partners were shaped both by global crises and by the

impact of war and economic shocks. In Ukraine, attacks on energy and agricultural infrastructure,

disruption of trade routes and contamination of land by explosives affected food production and

access, compounding vulnerability for internally displaced persons and host communities. EU

humanitarian assistance contributed to food and nutrition support as part of broader multi-sector

programmes, while development cooperation promoted sustainable and climate-resilient agriculture

through measures aligned with the European Green Deal, although most detailed examples are

reported at global level.

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In Türkiye and neighbouring countries hosting Syrian refugees, EU humanitarian funding provided

food and nutrition assistance alongside basic services, with more than EUR 204 million allocated to

Syrians and host communities in the region in 2025. Rising global food-price volatility and the record

number of people facing acute food insecurity worldwide reported by the Global Report on Food

Crises – 295 million people – confirmed the need to integrate food-system resilience into

enlargement-related policies, including through sustainable value chains and social-protection

measures.

Territorial and cross-border cooperation

Territorial cooperation continued to support good-neighbourly relations, regional integration and

local development in enlargement partners and their EU neighbours. Cross-border cooperation (CBC)

under Pre-Accession Assistance instrument (IPA), supported by over EUR 80 million, delivered tangible

results across the Western Balkans: by 2025, over 2 400 organisations had taken part in cross-border

partnerships, creating 1 300 new jobs and 465 new businesses, while strengthening reconciliation and

the institutional trust that underpins regional integration and EU accession.

The IPA III Programming framework window 5 serves as the common thread for 10 Interreg IPA Cross-

border, three Transnational, and two Interregional Cooperation programmes in the Western Balkans

and Türkiye, mobilizing approximately EUR 1.5 billion in EU funds over the 2021-2027 period. Crucially,

these programmes continue to promote territorial integration and mutual cooperation within the

Adriatic and Ionian basin. In doing so, they actively accelerate progress toward the macro-regional

objectives of both the EU Strategy for the Adriatic and Ionian Region (EUSAIR) and the EU Strategy for

the Danube Region (EUSDR).

In 2025, the EU continued to strengthen EU–Ukraine transport connectivity under the Solidarity Lanes

initiative, with Ukraine completing the upgrade of the Yahodyn road border crossing with Poland and

similar works advancing at other TEN-T crossing points along the Polish-Ukrainian border.

Regional civil-protection programmes in the Western Balkans, Türkiye and Eastern Partnership

countries, co-financed through IPA and the Union Civil Protection Mechanism, reinforced cross-border

disaster-risk management and preparedness.

Case study - The Growth Plan for the Western Balkans

The Growth Plan for the Western Balkans, including the EUR 6 billion Reform and Growth Facility for

2024-2027, illustrates how the EU combines political commitment, financial support and

conditionality to accelerate convergence with the EU. The Facility consists of EUR 2 billion in grants

and EUR 4 billion in loans, with funding linked to implementation of jointly agreed Reform Agendas

and to gradual integration into selected areas of the single market. By the end of 2025, Reform

Agendas had been adopted for all partners and the pre-financing has been disbursed to Albania,

Montenegro, North Macedonia and Serbia.

The Plan supports reforms in areas such as rule of law, public administration, the business

environment, energy and green transition, digitalisation and regional integration, and is

complemented by investments via the Western Balkans Investment Framework and Global

Gateway-type operations, for example in transport and energy. Its design makes financial support

conditional on verifiable progress in reforms, democratic standards and regional cooperation,

including normalisation of relations between Serbia and Kosovo.

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It shows that the Growth Plan can act as a powerful incentive for accelerated reforms and economic

integration, provided that monitoring is robust, transparency is ensured, and reform efforts are

communicated clearly to citizens. It also demonstrates the value of the ‘Team Europe’ approach that

aligns EU, EU Member State and international financial institution support behind a single, jointly

owned reform and investment agenda.

4.4.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters

Türkiye remains an important transit and host country for people fleeing conflict and crises, including

from Syria and other regions. Despite the integration of the refugees into public social services and

support schemes, humanitarian needs in Türkiye remain substantial and structurally entrenched,

particularly among refugee populations unlikely to integrate into national systems or return to Syria

in the foreseeable future. The EU allocated EUR 20 million for the most vulnerable refugees in Türkiye

mainly in protection and basic needs.

As regards UCPM regional cooperation in the IPA region, Eastern and Southern Neighbourhood

regional initiatives that were launched in 2023 continued with implementing activities in the region.

The On-Site Assistance (OSA) project in the Mediterranean (MENA countries), Western Balkans and

Türkiye was extended to the Eastern Neighbourhood and topped up with EUR 900 000 in 2024 and

continued in 2025 in all three regions. The programme provides technical support to the national civil

protection authorities in the region in building their disaster risk prevention, preparedness, and

response, as well as interactions with the UCPM.

Under the UCPM, several capacity building funding instruments are available to support disaster

prevention and preparedness. The Technical Assistance for Disaster Risk Management (Track 1) is a

single-country grant addressing EU Member States, UCPM Participating States, and other countries

such as Kosovo, to assist their efforts to join the UCPM. The same countries are eligible under the

Technical Assistance Financing Facility (TAFF). TAFF aims to give civil protection and disaster risk

management authorities access to prevention and preparedness expertise. In 2025, different projects

under these instruments were awarded to Albania, Bosnia and Herzegovina, Montenegro, North

Macedonia, Serbia, Kosovo, Ukraine, and Türkiye. Another capacity building instrument, of a non-

financial nature, is the UCPM Peer Review Programme. In October 2025, a peer review focused on the

overall disaster risk governance was carried out in Kosovo, bringing Western Balkan partners closer to

EU standards.

In the Western Balkan region, Albania, North Macedonia, Bosnia and Herzegovina, and Montenegro

requested operational assistance under the UCPM following record breaking wildfires in the summer

2025. Albania requested assistance in three instances and received aerial firefighting teams. North

Macedonia requested assistance in two instances and received aerial and ground firefighting. Bosnia

and Herzegovina received aerial and ground firefighting teams. Montenegro received aerial and

ground firefighting teams.

In addition, the Copernicus Emergency Management Service was activated to support damage

assessment efforts in Albania, Montenegro and in Bosnia and Herzegovina, while analytical support

from UCPM’s Scientific Partnership on natural hazards was available to them as well.

Additionally, North Macedonia requested assistance following a fire in a nightclub. Medical

evacuations and treatments for 40 patients were provided by 12 EU Member States and UCPM

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Participating States through the UCPM. Particularly among refugee populations unlikely to integrate

into national systems or return to Syria in the foreseeable future.

The EU allocated EUR 20 million for the most vulnerable refugees in Türkiye mainly in protection and

basic needs.

4.4.4. Crisis response and preparedness

In 2025, the EU further strengthened crisis response and preparedness in enlargement countries by

combining the rapid-response and resilience pillar of NDICI–Global Europe, enlargement and

neighbourhood instruments, the Ukraine Facility, humanitarian aid and civil protection tools. In

Ukraine, rapid response an humanitarian demining, accountability for international crimes – notably

by enabling the inception work for the Special Tribunal for the Crime of Aggression against Ukraine –

support for children unlawfully deported and forcibly transferred by Russia, strategic communication

and emergency interventions for energy security and support to critical civilian security actors, as well

as support to veterans and other particulary war-affected groups like children from frontline

communities, complementing large-scale humanitarian assistance and security support through the

European Peace Facility.

In the Republic of Moldova rapid response was notably deployed to support election integrity,

independent media, strategic communications and resilience to hybrid threats (notably cyber and

internal security).

A fourth phase of the regional civil-protection programme for Eastern Partnership countries, launched

in November 2025, aimed to boost disaster resilience and facilitate the progressive integration of

Ukraine and the Republic of Moldova into the Union Civil Protection Mechanism.

In the Western Balkans and Türkiye, rapid-response and pre-accession actions backed measures in

situations of (post-)conflict and climate-related shocks, including community-based resilience,

reconciliation and confidence-building, while the Technical Assistance Financing Facility and regional

civil-protection programmes strengthened prevention, preparedness and risk-management

capacities, for example through wildfire-risk peer reviews and technical-assistance projects

implemented by national authorities and Kosovo.

4.5. European Neighbourhood

4.5.1. European Neighbourhood East

4.5.1.1. Introduction (policy developments)

In the Eastern Neighbourhood, marked by Russia’s war of aggression against Ukraine, the EU

continued to engage with partner countries of the region either on bilateral or on regional basis

(Armenia, Azerbaijan, Belarus, Georgia, the Republic of Moldova and Ukraine).

The Eastern Partnership (EaP) framework continues to provide a well-established and efficient

framework of cooperation to all participants, with Belarus engaging via civil society actors. As a robust

policy instrument, the EaP remains central to fostering multilateral cooperation and supporting

structural reforms across the Eastern Neighbourhood. The EaP framework facilitates targeted

technical assistance and institutional support to help partner states implement critical governance,

judicial, and anti-corruption measures. In March 2025 the EU and partner countries endorsed the EaP

Multi-Annual Work Plan 2025-2027 that indicates priorities for the mid-term agenda, including: a

focus on complementarity policy measures to the enlargement process; strengthening further

democratic resilience and security; boosting socio-economic development, investments, and step-up

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support to civil society and youth and ensuring complementarity with other instruments and policy

initiatives of the EU.

In 2025, EU–Moldova relations continued to deepen across all areas, as the Republic of Moldova

advanced on its EU accession path. Cooperation with Armenia and Azerbaijan was pursued under the

European Neighbourhood Policy and the EaP, which continues to serve as the overarching policy

framework for stability, economic development and bringing partner countries closer to the EU. For

Belarus, the EU maintained its policy of pressure on the authorities while supporting citizens, civil

society and independent media in the face of persistent repression.

The Global Gateway strategy and the 2025-2027 multiannual action programmes for the Eastern

Neighbourhood remained key instruments for supporting resilience, connectivity and socio-economic

development. In July 2025, new multiannual action programmes for the Eastern Neighbourhood

(excluding bilateral assistance for Ukraine) were approved, with commitments of EUR 668.2 million.

A new strategic approach to the Black Sea region, adopted in May 2025, proposes to take forward

regional cooperation and engagement in the Black Sea region along three main pillars: (1) Enhancing

security, stability, and resilience; (2) Fostering sustainable growth and prosperity; (3) Promoting

environmental protection, climate change resilience and preparedness. As a major step in

strengthening EU engagement in the Black Sea region, a first Ministerial Meeting on cross-regional

security and connectivity took place in Luxembourg in October 2025. The Ministerial was a first big

and inclusive step, laying the ground for a coordinated approach on security and connectivity

initiatives, with more regular meetings to be organised in the future.

On regional connectivity, the Ministerial endorsed a Connectivity Agenda linking Europe with Central

Asia through the South Caucasus, with follow-up discussions held at the Trans-Caspian Transport

Corridor and Connectivity Investors Forum in Tashkent. The Connectivity Agenda also provides an

important basis for closer cooperation with Armenia and Azerbaijan on sustainable transport, energy

and digital links, making it a geopolitical investment in the peace of the region.

At regional level, the EU continued to enhance good governance, rule of law, human rights, gender

equality, civil society, and youth, tailoring the support to different situations in countries. Programmes

such as Partnership for Good Governance, EU4GenderEquality, EU4Youth, EU4Integrity and dedicated

support to civil society were among the channels of support.

Throughout 2025, the EU further increased its political, military, financial, humanitarian, legal and

diplomatic support to Ukraine and the Ukrainian people. By the end of 2025, the EU’s support

amounted to over EUR 193.3 billion. This included the EUR 50 billion-worth Ukraine Facility and a

financial assistance package consisting of an exceptional Macro Financial Assistance (MFA) loan of EUR

18.1 billion. EU military support amounted to EUR 69.3 billion, of which EUR 6.1 billion were

channelled through the European Peace Facility. EU leaders decided in December 2025 to mobilise an

additional EUR 90 billion in common borrowing for 2026-2027 to strengthen Ukraine’s defence

capabilities and ensure the continued functioning of the state, while also contributing to Ukraine's

resilience and its closer integration with Europe's defence industrial base.

Continued backsliding on fundamental values led to a further recalibration of EU engagement in

Georgia resulting in halting the assistance directly benefiting state authorities.

EU−Moldova relations deepened significantly in 2025, as the country continued to advance on its EU

accession path, despite persistent hybrid attacks by Russia. A key milestone was the adoption and

signing in March 2025 of the EU Growth Plan for the Republic of Moldova, worth EUR 1.9 billion,

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combining reforms, investments, and financial support to accelerate the Republic of Moldova's

economic development, as part of its EU accession process. The EU–Moldova Association Council on

4 June 2025 focused on the Republic of Moldova's EU accession, political dialogue and reforms,

cooperation and convergence in foreign and security policy, as well as economic and sectoral

cooperation. On 4 July 2025, the EU and the Republic of Moldova held their first-ever summit in

Chișinău, marking a historic milestone in bilateral relations and reaffirming their shared commitment

to a shared future of peace, security, and prosperity. The September 2025 parliamentary elections

delivered a strong mandate for the Republic of Moldova's European path, further consolidating the

political basis for EU reforms. the Republic of Moldova also successfully completed the screening of

its national legislation against the EU acquis in September 2025, paving the way for the formal launch

of negotiations across all thematic clusters. EU engagement with the Republic of Moldova remained

focused on strengthening democratic and economic resilience, advancing the accession process, and

countering external destabilisation.

Cooperation between the European Union and Armenia further deepened at an unprecedented pace

in 2025. The second installment of the Resilience and Growth Plan (EUR 202.5 million) was announced

in September, including a Multisector budget support element, which will incentivise reforms on

export diversification, visa liberalisation and the rule of law, jobs skills and social inclusion. A High-

Level Policy Dialogue to monitor reform implementation was also launched in September. In

November, the Visa Liberalisation Action Plan was handed over to the Armenian authorities. The

Partnership Council of 2 December 2025 highlighted the strong momentum in the EU−Armenia

relations and adopted the new Strategic Agenda for the EU−Armenia Partnership, setting ambitious

cooperation priorities across all sectors and marking a major step in deepening and advancing bilateral

ties. Cooperation on regional connectivity was also stepped up, in line with the Connectivity Agenda

and Armenia’s Crossroads of Peace initiative. This intensified bilateral engagement was reflected in

several high-level visits by Armenian officials to Brussels, including a joint meeting in July between the

Prime Minister of Armenia and the Presidents of the European Commission and the European Council.

EU engagement with Armenia was focused on strengthening the country’s democratic and economic

resilience, supporting the regional peace and normalisation processes, as well as enhancing regional

connectivity, with a view to unlocking significant security and economic benefits for Armenia.

Relations with Azerbaijan evolved in 2025 against the background of a more positive regional context

following the agreement ‘On the Establishment of Peace and Interstate Relations between the

Republic of Armenia and the Republic of Azerbaijan" in August, which opened new space for dialogue

between the two states and for EU engagement in support of a peaceful and stable South Caucasus.

The improved political environment also contributed to the advancement of EU-Azerbaijan bilateral

relations. In September 2025, the EU and Azerbaijan resumed negotiations on the new Partnership

Priorities for 2026-2030, following the expiry of the previous framework in December 2024. High-level

engagement intensified in areas of mutual interest, in particular energy, transport and investment, in

line with the EU’s energy-security and connectivity objectives. In the transport sector, the restoration

of the Nakhchivan railway line was identified as a joint priority project, for which both parties agreed

to launch a feasibility study. It was also agreed to launch a High-Level Working Group on Economic

Cooperation to strengthen cooperation and boost investments, including in connectivity. In parallel,

it was agreed negotiations on the new bilateral agreement would also resume.

At the same time, the EU continued to stress the importance of human rights, gender equality, civil

society, freedom of expression, and freedom of assembly and association, and maintained support for

civil society organisations and independent media in an increasingly restrictive environment, including

through thematic and regional Eastern Partnership programmes.

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EU actions under NDICI–Global Europe’s Crisis Response funding stream, its thematic programme on

Peace, Stability and Conflict Prevention, as well as the Common Foreign and Security Policy

instruments, such as the EU Special Representative for the South Caucasus and the EU Mission in

Armenia, contributed to confidence-building and reconciliation efforts in the region.

In Belarus, 2025 saw no change in the EU’s fundamental approach. Belarus continued to support

Russia’s war of aggression against Ukraine and to engage in hybrid attacks, notably along borders with

Lithuania, Latvia and Poland. Despite the pardon of more than 300 political prisoners, arbitrary arrests

continued in 2025 and hundreds of people remained unjustly detained, amid widespread reports of

ill-treatment and incommunicado detention. In this context, the EU upheld its policy of not providing

any direct assistance to the Belarusian authorities, while sustaining and scaling up support to the

citizens of Belarus, civil society, independent media and democratic forces, including those in exile. A

new assistance programme continued to provide direct support to civil society, human rights

defenders, independent journalism, educational and cultural initiatives and small and medium-sized

enterprises in exile, and Belarusians remained eligible for a range of regional Eastern Partnership

programmes such as EU4Culture, EU4IndependentMedia, EU4GenderEquality, EU4Youth and the

Partnership for Good Governance.

4.5.1.2. Implementation

Human development and inequalities

At regional level, EU4Youth remained the main vehicle to foster youth participation in society and the

economy and to improve skills matching, complemented by new regional programmes on youth

engagement and on education reform to strengthen the quality of education systems. Cultural

cooperation and intercultural dialogue continued through EU4Culture, while health resilience was

reinforced by enhancing preparedness and response to cross-border health threats.

In Armenia, budget support and complementary programmes helped advance reforms to improve

access to quality education, support the socioeconomic inclusion of Karabakh Armenians and other

vulnerable groups and strengthen the political empowerment of youth. The social dimension of the

EUR 270 million Armenia Resilience and Growth Plan 2024-2027 included investments in local services,

women’s health and rural livelihoods in Syunik under the Resilient Syunik Team Europe Initiative,

which has already provided a newly furnished kindergarten for over 150 children, modernised citizen

service offices and support to rural veterinary services.

In Azerbaijan, capacity building to state authorities was provided through various technical assistance

facilities, especially with regards to water management and transport. In Belarus, where no assistance

is channelled to the authorities, the EU continued to support citizens directly. In December 2024, the

European Commission has adopted a new assistance programme ‘EU4People of Belarus: Strengthen

Human Rights and Education’ worth EUR 30 million. The programme aims to preserve an independent

civic space and support unbiased quality education opportunities for Belarusians. This programme

adds to the EUR 170 million mobilised by the EU since 2020 in six key areas: civil society, human rights,

independent media, education, culture, and small and medium sized business in exile. Belarusians also

benefit from regional initiatives such as EU4Culture, EU4IndependentMedia, EU4GenderEquality,

EU4Youth and the Partnership for Good Governance.

Green Deal

The Green Deal increasingly structures cooperation with Eastern Neighbourhood partners through

investments in clean energy, climate resilience, water and air quality. Regionally, the EU4Climate

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Resilience programme supported technical assistance and pilot projects to strengthen climate

adaptation at municipal level, helping partner countries meet their Paris Agreement commitments

and align with EU legislation, while the EU4Green Recovery East programme, launched in 2025,

supported water management, approximation with the EU environmental acquis and the promotion

of circular economy practices in the private sector.

In Armenia, Green Deal actions cut across energy, environment and agriculture. EU-supported

operations promoted renewable energy and energy efficiency in public buildings and provided

nuclear-safety expertise, while newly approved support targeted water management for Lake Sevan,

improved air quality and green agriculture. In Syunik, the Resilient Syunik Team Europe Initiative

installed three solar stations, introduced efficiency and renewable-energy solutions in 10 municipal

buildings and provided energy-efficient stoves to 186 households, linking climate action with better

services and living standards.

In Azerbaijan, COP29 created new momentum for cooperation on green connectivity. With the

signature of the Financing Agreement at the end of 2025, the EU and Azerbaijan agreed to support

water management and to explore connectivity-related initiatives in energy and transport. Belarusian

authorities are not eligible for direct support, but Belarusians can participate in regional environment

and climate programmes that foster sustainable practices across all Eastern Partnership countries.

Sustainable growth and jobs

The Global Gateway strategy remained the main lever for investment and jobs, having unlocked an

estimated EUR 14.5 billion since 2021 through guarantees, blending and bilateral programmes.

In Armenia, EU cooperation backed SME development and access to finance, including targeted

support for wine, textile and agri-food value chains to boost exports and quality standards. The Team

Europe initiative ‘Resilient Syunik’ continues to support MSMEs, strengthening the border region’s

socioeconomic development. Under Resilient Syunik, 32 aspiring entrepreneurs received coaching and

grants to launch businesses in diverse sectors, supporting local employment and diversification.

In Azerbaijan, EU support, also provided through Global Gateway related measures, sought to foster

economic development, diversification, and SME competitiveness including by strengthening the

capacity, environmental performance and financial sustainability of local businesses.

In the Republic of Moldova (as part of the wider Eastern Neighbourhood), the EU contributed to new

national SME support schemes and the creation of a Fund for Entrepreneurship and Economic Growth,

as well as to improved statistical and spatial-data systems for economic planning.

TAIEX activities promoted inclusive growth, for example via a study visit on empowering women in

circular entrepreneurship, which helped Moldovan stakeholders draw on EU experience for

sustainable SME development.

Digitalisation, science, technology, innovation and infrastructure

Digital cooperation in the Eastern Neighbourhood is driven by EU4Digital and related regional

initiatives. EU4Digital supports integration with the EU digital single market and promotes investment

for broadband and digital innovation.

In 2025, the EU4Digital Facility continued to provide technical support, including in support of

Ukraine’s and the Republic of Moldova’s integration into the EU roaming area, which entered into

effect on 1 January 2026. It also supported the establishment of an artificial intelligence tool to

facilitate transposition of the EU acquis and launched the EU4Digital Academy, a regional digital skills

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platform providing free online courses on cyber-security, digital marketing and business digitalisation

to more than 11 000 users across the Eastern Partnership. In Armenia, work progressed on aligning

eID with EU rules under EU4Digital, while the EaPConnect programme enabled the launch of the

Armenian National Supercomputing Centre, positioning the country as a regional hub for digital

technologies. The EU4Innovation East regional project, launched in June 2024, is supporting start-ups,

with a focus on women-led companies in digital sectors. Azerbaijan continues to benefit from regional

digital skills activities under EU4Digital, as well as bilateral discussions on the digitalisation of transport

corridors, with a focus on the Trans-Caspian Transport Corridor. The Republic of Moldova continued

alignment with EU payment and infrastructure networks, including by joining SEPA and by furthering

its integration into new TEN-T corridors.

Migration and forced displacement

Migration and forced displacement in the Eastern Neighbourhood were mainly triggered by the

consequences of Russia's war against Ukraine. EUBAM (EU Border Management Assistance Mission)

continued to play a key role at the Republic of Moldova–Ukraine border until November 2025,

mentoring customs and police officers, strengthening security along the administrative line with the

Transnistrian region and supporting implementation of the EU–Ukraine Solidarity Lanes, including

through joint and coordinated controls at key border-crossing points and training more than 500

officers.

The EU worked with partners to maintain visa-liberalisation benchmarks for the Republic of Moldova

and Ukraine and to uphold readmission commitments. The serious democratic backsliding in Georgia

led the Council to adopt in January 2025 a partial suspension of the EU–Georgia visa-facilitation

agreement for holders of diplomatic and service passports, implemented by a majority of EU Member

States.

For Armenia, the Visa Liberalisation Dialogue launched in 2024 advanced: in November 2025, the

Commission presented the EU–Armenia Visa Liberalisation Action Plan in Yerevan, setting out the

benchmarks Armenia must meet across travel document security, border and migration management,

public order, external relations and fundamental rights. The EU also continued to support Armenia's

migration management capacity, including through cooperation with Frontex and the 2024 opening

of a new EU-aligned asylum centre. Belarus continued instrumentalisation of migration against the

EU. Affected Member States received financial support to strengthen their border surveillance

capabilities. The EU broadened the scope of Belarusian sanctions regime to cover hybrid activities that

threaten stability or security in the EU and its Member States.

Governance, peace and security (and conflict prevention)

Regionally, the EU continued to support reforms in governance, democracy, rule of law,

anti-corruption and the fight against organised crime, with a strong emphasis on civil society

engagement, independent media and gender equality. The support was implemented through

programmes such as Partnership for Good Governance, EU4Integrity, EU against Organised Crime as

well as actions under the Crisis Response funding stream were warranted by rapid and/or critical

geopolitical shifts.

In Armenia, budget support advanced judicial and legal reforms and anti-corruption policies, with

complementary technical assistance in justice, law enforcement and security sectors under the CEPA

framework. A Twinning project with the Ministry of Justice and the Corruption Prevention Commission

helped strengthen integrity and corruption prevention in the public sector.

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The EU Mission in Armenia (EUMA) continued to monitor the security situation on the ground,

contributing to human security and supporting confidence building between Armenia and Azerbaijan.

Crisis-response interventions and thematic peace and stability actions supported countering Foreign

Information Manipulation and Interference (FIMI), ensured continued financing and operations of

independent media and fostered reconciliation efforts in the South Caucasus. The EU Special

Representative for the South Caucasus and the crisis in Georgia remained central to diplomacy and

mediation.

In Belarus, the EU’s policy of non-recognition and sanctions remained in place; no assistance is

provided to the authorities, while support is directed to citizens, civil society and independent media.

Cross-border cooperation

Under Eastern Partnership frameworks, cross-border projects between EU Member States and

Eastern partners support joint initiatives in areas such as environment, transport, tourism and public

services, while fostering people-to-people contacts and trust.

EUBAM’s joint work with Moldovan and Ukrainian border agencies contributed to the functioning of

the Solidarity Lanes in the lower Danube region up until November 2025. The new Black Sea

Connectivity Agenda, adopted in May 2025, underpins cross-border connectivity between the EU, the

South Caucasus and Central Asia, with Armenia and Azerbaijan as key land bridges.

Regional civil protection programmes in the Eastern Partnership support shared risk assessments, joint

exercises and integration into the Union Civil Protection Mechanism, helping partners manage

cross-border disasters more effectively.

Food security and nutrition

Food security challenges in the Eastern Neighbourhood are closely linked to Russia’s war against

Ukraine, climate change and economic shocks. At regional level, EU4Environment, EU4Rural and other

initiatives support more sustainable and climate resilient agriculture and value chains, though

reporting remains mostly regional. In Armenia and Azerbaijan, rural development and SME

programmes contributed to improved livelihoods, diversification and value addition in agri-food

sectors.

Humanitarian food and nutrition assistance was primarily directed to Ukraine and to refugees and

displaced populations in neighbouring countries, while development cooperation promoted

sustainable agriculture and rural development as part of broader Green Deal and growth agendas.

Case study – Education for Belarusians

Since the disputed 2020 elections, the Belarusian education sector has been heavily affected by

political repression. Students, educators, and researchers are among the most targeted groups, facing

expulsions, dismissals, and persecution for their civic stance. During this difficult period, the

programme ‘Support to Advanced Learning and Training (SALT I-III)’ assists Belarusian students,

lecturers, and researchers forced to flee the regime.

One of the programme’s key elements is financial assistance, which enables students to continue

university studies and helps displaced lecturers and researchers return to academic work and rebuild

professional networks. Survey participants also emphasized the programme’s emotional support,

which restored self-confidence, provided stability, and reaffirmed that their knowledge and expertise

are valued. Belarusian organisations operating abroad emphasised that SALT is a strategically

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important initiative for preserving Belarus’ intellectual potential in forced migration and highlighted

the need to strengthen communication and decision making to enhance the programme’s impact.

An independent survey conducted by RAIT Group shows that the SALT programme has had a

significant impact on the Belarusian community. Respondents evaluated SALT very positively − the Net

Promoter Score (NPS) reached 82 (on a scale from -100 to 100). Such a high score indicates strong

trust in and support for the programme. The results indicate that SALT is particularly important for

Belarusian academic and civic communities that have formed in Poland, Czechia, Germany and

Lithuania.

4.5.1.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

The spillover effects of Russia’s war of aggression against Ukraine on neighbouring eastern partners

remained significant in 2025. The Republic of Moldova hosted around 139 000 Ukrainian refugees, for

whom the EU made EUR 9.5 million available in 2025, channelling assistance primarily through cash

and protection services for the most vulnerable. Humanitarian funding for food, basic services and

protection in the Republic of Moldova complemented broader support for institutional resilience and

border management under other EU instruments. On 17 January 2025, the Republic of Moldova

requested assistance due to the risk of energy supply cut-off. In response, five Member States offered

generators and air conditioning systems.

In Armenia, the EU also continued supporting Karabakh Armenians, notably in the sectors of basic

needs, shelter, health and protection. The overarching objective remains their inclusion into national

social protection schemes, enabling a gradual exit of humanitarian actors. A humanitarian-

development-peace nexus process was initiated in 2024 and is expected to conclude in 2026.

In November 2025, the European Commission launched the flagship regional civil protection

programme ‘Prevention, Preparedness and Response to natural and human-induced Disasters in the

Eastern Partnership countries’ (EUR 5 million, 2025-2029). The programme aims to improve disaster

resilience and response capacities while fostering integration and coordination among Eastern

Partnership countries with the UCPM.

4.5.1.4. Crisis response and preparedness

In 2025, the EU further strengthened crisis response and preparedness in the European

Neighbourhood East, combining Rapid Response and thematic instruments under NDICI–Global

Europe with Common Foreign and Security Policy (CFSP) instruments and Team Europe Initiatives.

Actions focused on addressing the security and humanitarian consequences of Russia’s war of

aggression against Ukraine, supporting peaceful solutions, democratic and media resilience in the

South Caucasus, as well as standing by the people of Belarus in the face of continued repression.

In Armenia and Azerbaijan, the EU continued to support efforts towards a peaceful and stable South

Caucasus. The EU Mission in Armenia (EUMA) contributed to confidence-building between

communities by observing, and reporting on the situation on the ground, thereby enhancing human

security in conflict-affected areas. Actions under NDICI–Global Europe’s Crisis Response funding

stream as well as the thematic programme on Peace, Stability and Conflict prevention promoted

dialogue and conflict resolution. EU had mobilised EUR 12.6 million to support Karabakh Armenians

in humanitarian aid and civil-protection in-kind support. In Azerbaijan, in the framework of the Team

Europe initiative on Mine Action, the EU continued to provide assistance to humanitarian demining

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and mine action in conflict-affected areas, including through support to demining, equipment, and

capacity-building.

Crisis Response funding was also used in Armenia to ensure the continuity of operations of

independent media and support countering Foreign Information Manipulation and Interference

(FIMI). In addition, the Resilient Syunik Team Europe Initiative in southern Armenia, with an

approximate five-year budget of EUR 200 million, continued to strengthen socio-economic and

institutional resilience by investing in energy, basic services and livelihoods.

In Belarus, where the authorities maintained support for Russia’s war and repression of dissent, EU

Crisis Response engagement focused on democratic resilience and support to citizens. No assistance

was provided to the authorities; instead, a new assistance programme adopted at the end of 2024

continued to provide direct support in 2025 to civil society, human rights defenders, independent

media, educational and cultural initiatives and small and medium-sized businesses in exile, while

assistance to democratic civic engagement and leadership was stepped up in response to the

deteriorating human rights situation.

At regional level, the Global Gateway and multiannual programmes for the Eastern Neighbourhood

supported structural resilience through investments in connectivity, green transition and

socio-economic development, while dedicated programmes on climate resilience, water management

and energy (EU4Environment, EU4Climate Resilience, Covenant of Mayors East, EU4Energy) helped

partner countries prepare for and reduce the impact of future crises, including those driven by climate

change and environmental degradation.

4.5.2. European Neighbourhood South and the Middle East/Gulf region

4.5.2.1. Introduction (policy developments)

In 2025, the EU’s engagement with the Southern Neighbourhood as well as the wider Middle East

including the Gulf and Iraq entered a new phase of strengthened relationships, in a persistently

volatile regional context. The EU equipped itself with new tools – notably the Pact for the

Mediterranean and Strategic and Comprehensive Partnerships – to deliver more coherent,

impact-oriented action across the region. A dedicated Commission Directorate-General for the Middle

East, North Africa and the Gulf became fully operational as the Commission’s hub for relations with

19 partner countries from the Southern and Eastern Mediterranean and the Gulf to develop strong

partnerships with these countries based on mutual interest, and to ensure common sustainable

prosperity and resilience.

The Joint Commission and the High Representative Communication on the Pact for the

Mediterranean, adopted in October 2025, provided the new cooperation framework for the EU-

Southern Neighbourhood relations. Building on the 2021 Agenda for the Mediterranean and based on

co-ownership, co-creation and co-responsibility, it set out priority areas and concrete joint actions to

promote peace, prosperity and stability. It envisaged a two-layer implementation and monitoring

system at EU and Euro-Mediterranean level and a rolling action plan. The Pact was launched jointly by

EU Member States and Southern partners in Barcelona on 28 November, at the occasion of the 30th

anniversary of the Barcelona Process and the 10th Union for the Mediterranean Regional Forum. The

Joint Communication on the Pact was welcomed in the FAC Conclusions of 20 November and the

European Council Conclusions of 18 December, signalling a renewed, partnership-based approach to

the Mediterranean.

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The regional context remained dominated by conflict and fragility. The war in Gaza continued to

generate a severe humanitarian crisis, widespread destruction and increased instability across the

Middle East, with spill-overs involving Hezbollah and Iran and heightened tensions in the Red Sea. The

EU helped frame a more strategic posture through extensive diplomatic outreach, coordinating the

EU contribution to the Gaza Peace Plan as endorsed by UNSC Resolution 2803. It included several

elements, such as facilitating the monitoring of the Rafah crossing point via the re-deployment of

EUBAM (EU Border Management Assistance Mission) Rafah, tabling a comprehensive programme for

Palestine’s recovery and resilience for 2025-2027 and convening the first Palestine Donor Group

meeting. It involved also proposing measures in response to actions undermining the two-state

solution and keeping a pro-active stance in the work of the Global Alliance for the Implementation of

the Two-State Solution.

The situation in Syria changed fundamentally with the fall of the Assad regime; sanctions were lifted

and a substantial support package for institutional capacity, socio-economic recovery and transitional

justice was quickly mobilised, preparing a revitalised EU–Syria relationship. Remaining a complex and

fragile context, Libya experienced escalation of violence with clashes in Tripoli in May 2025. The

escalation of the crisis in Sudan in 2025, adding to the continued instability in the Sahel region, has

had substantial spillover effect on North African countries, who are transit and increasingly destination

countries for migrants and refugees.

At the same time, the EU deepened differentiated bilateral partnerships across the Southern

Neighbourhood. Strategic and Comprehensive Partnerships with Tunisia, Egypt and Jordan provided

structured frameworks for political dialogue, Macro Financial Assistance and Budget Support, reforms

and investment. Engagement with Lebanon and Iraq focused on stabilisation, reforms and economic

diversification, while programmes in Yemen continued to address the root causes of instability and

fed into broader Red Sea security efforts.

The EU regarded the Gulf region as a strategic partner for regional and global security, as well as

economic development. Building on the Joint Commission and High Representative Communication:

‘A strategic partnership with the Gulf’ adopted in 2022, Strategic Partnership Agreements were

offered to the six countries of the Gulf Cooperation Council. By the end of 2025, five had responded

positively and negotiations had been launched with the United Arab Emirates (UAE) and Qatar, with

a view to establishing ambitious and comprehensive legal frameworks for cooperation in areas

including security, climate, energy and digitalisation. On trade, a significant milestone between the EU

and the UAE was the decision to start negotiations for a Free Trade Agreement. Cooperation on peace

and security continued to deepen, also through the second EU-GCC Regional Security Dialogue in April

2025. Work on the India–Middle East–Europe Economic Corridor advanced through steering

committees in New Delhi and Brussels, which agreed on a three-tier governance structure to guide

the implementation from 2026 onwards.

Across the Southern Neighbourhood and the wider Middle East/Gulf, the EU used Global Gateway and

Team Europe to promote sustainable investment and connectivity. An Investment Platform for

blending and guarantees was set up to mobilise public and private investment through EFSD+

guarantees, and country-based platforms and guarantee mechanisms were advanced in Morocco,

Egypt, Jordan and Palestine, with feasibility work under way in Algeria and Tunisia. At the same time,

regional and thematic programmes supported jobs and skills for youth and women, circular-economy

initiatives and democratic governance, while new multiannual migration programmes for the

Southern Neighbourhood reflected the external dimension of the Pact on Migration and Asylum.

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4.5.2.2. Implementation

Human development and inequalities

In 2025, EU support for human development in the Southern Neighbourhood, the wider Middle East

and the Gulf combined large-scale crisis response with long-term investments in basic services, social

cohesion and gender equality. In Syria and neighbouring refugee-hosting countries, the EU and its

Member States had together made available more than EUR 37 billion since 2011, including EUR 2.49

billion inside Syria, with the Madad Trust Fund alone reaching over 11 million people through health,

education, livelihoods and local-infrastructure support. In 2024, the EU adopted EUR 448 million for

Lebanon and Jordan to sustain education, health, WASH, social assistance and resilience for Syrian

refugees and host communities, and these programmes continued to deliver in 2025. Inside Syria, EU

assistance substituted for largely absent public services by maintaining basic and TVET education, skills

training and psychosocial support, and by strengthening health-workforce capacity through

redesigned curricula and new training schemes for mental-health and psychosocial-support

personnel.

In Palestine, the EU maintained and re-built engagement with civil-society organisations after the

escalation of violence in the past years, led the gender Action Plan (GAP) III country-level

implementation plan with EU Member States and civil society, and supported youth participation

through forums, volunteer platforms and cultural initiatives. EU funding of EUR 22 million helped clear

Palestinian Authority arrears for medical referrals to East Jerusalem hospitals, securing access to

essential specialised health care for the population in the West Bank. A statement to restore the

humanitarian corridor from Gaza to East Jerusalem hospitals was co-signed by the EU High

Representative/Vice-President and EU Commissioner for Equality, Preparedness and Crisis

Management.

In Libya, the EU supported approximately 70 municipalities through local governance and service-

delivery programmes. These initiatives strengthened municipal capacities and improved access to

essential public services, including health, education, water and sanitation, local infrastructure,

livelihoods and social cohesion. The EU subsequently launched a new resilience and recovery

programme supporting municipalities in sectors such as water management, road networks, primary

health care, education and cultural heritage.

In Yemen, the EU worked on improvements in public service delivery, including through the SIERY

project, which has restored 177 public services and improved access for over seven million Yemenis.

The EU also worked on social protection, linking humanitarian cash assistance to livelihoods support.

In Tunisia, the first phase of the school modernisation programme was completed in 2025, with the

rehabilitation of 420 schools and construction of 59 new schools for a total of EUR 223 million, partly

financed with a loan from the European Investment Bank and EUR 22.5 million grant of the EU. A

second phase is ongoing with 80 new schools, climate resilient and digitally connected, under

construction and benefit from a EUR 25 million grant from the EU.

Green Deal

In Algeria, the EU further strengthened its support for the country’s energy transition and climate

objectives through a ‘Team Europe’ approach. In July 2025, the EU and Algeria signed the Financial

Agreement for a new action, adopted under the 2024 Annual Action Plan (AAP) with an EU

contribution of EUR 18 million and German co-financing of EUR 20 million, supporting the

development of Algeria’s first reference green hydrogen plant. In October 2025, the EU and Algeria

signed a Financial Agreement for a EUR 20 million water-sector programme, also adopted under the

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2024 AAP, aimed at strengthening sustainable water resource management and climate adaptation in

a context of water scarcity.

In Morocco, implementation of the 2022 EU–Morocco Green Partnership advanced across energy

transition, economic decarbonisation, climate adaptation, environmental protection and green and

blue economies, providing a comprehensive framework for aligning reforms and investment with the

European Green Deal. In 2025 the budget support ‘Economie Verte’ focusing on circular economy was

signed. In Jordan, the ‘EU–Jordan partnership for a green transition’ programme adopted under the

2024 AAP moved into implementation, supporting decarbonisation, green growth and green jobs.

In Lebanon, EU projects ensured renewable-energy and energy-efficiency solutions for security and

justice institutions and schools, including those used as shelters, and supported the Ministry of Energy

and Water and water establishments in maintaining safe drinking-water provision during conflict

escalation. Additional interventions helped keep nine wastewater-treatment plants operational in

heavily affected areas, while the ‘Hawkamaa’ project backed water utilities under pressure. In Libya,

the EUR 102 million 2025-2027 programme included EUR 23.5 million for climate, energy and

environmental action.

At a regional level, in the field of environment, the EU continued supporting the Barcelona Convention

and the protection of Mediterranean biodiversity and coastal areas, as well as its long-standing

engagement in the management of scarce water resources. It started the design of a future regional

project to facilitate basin organisations peer-to-peer exchanges and integrate earth observation into

water management practices, in accordance with the water agenda of the Union for the

Mediterranean.

In the field of energy, the EU continued supporting the long-standing collaboration of Mediterranean

Transmission System Operators (Med-TSO) and Mediterranean Energy Regulators (MEDREG) to

promote the creation of a Mediterranean energy market, which will provide a key element for the

Trans-Mediterranean Renewable Energy and Clean Tech Initiative (T-MED) under the Pact for the

Mediterranean. The EU also continued supporting the long-standing collaboration of Mediterranean

Energy Agencies through the MeetMED initiative to enhance climate resilience and low-carbon

transitions in the Mediterranean, with significant emphasis on improving energy efficiency in

buildings.

Sustainable growth and jobs

Sustainable growth and decent jobs were pursued through national reforms, regional economic

cooperation programmes and new Global Gateway investment platforms.

In Morocco, the EU ensured timely disbursement of budget support operations and adopted a 2025

Financing Decision supporting business climate and skills improvements.

In Algeria, the EU signed the Financial Agreement for the EUR 7 million ‘Support to Economic

Governance’programme, adopted under the 2024 AAP, to strengthen anti-corruption practices and

the e-governance and statistics systems. Under the 2025 AAP, three new actions were adopted to

promote sustainable growth and job creation: ‘EU-Algeria for Business’ (EUR 16 million), focused on

investments and trade facilitation; ‘Cleantech Platform’ (EUR 18 million), supporting Algeria’s

integration into EU clean-technology value chains; and ‘Masalek’ (EUR 11 million), targeting youth and

women’s engagement in culture and tourism. The latter builds on ‘Jil-Siyaha’, which continued to

deliver results in 2025, including four new thematic tourism routes, 130 certified hospitality trainers,

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15 new tourism-skills curricula and around one million social media interactions generated through

support to young artists.

In Egypt, the EU and Egypt continued to advance with the implementation of six key pillars of the

Strategic and Comprehensive Partnership through its EUR 7.4 billion financial and investment package

for 2024-2027, comprising up to EUR 5 billion in Macro Financial Assistance, EUR 600 million in grants

(including EUR 200 million for migration), and EUR 1.8 billion in additional investments. The

investment dimension is being further operationalised through the EU−Egypt Investment Mechanism,

launched in 2025 to help mobilise additional public and private investment in support of Egypt’s

reform and development priorities. With the disbursement of the Macro Financial Assistance first

instalment of EUR 1 billion in January 2026 (out of EUR 4 billion), the EU continued to support Egypt’s

macro-economic stability, business environment reforms and green transition.

In Libya, the 2025-2027 programme included EUR 23.5 million for economic growth and digital

transformation. Regionally, a portfolio exceeding EUR 465 million supported entrepreneurship, MSME

finance, impact-investing, social economy, women and youth economic empowerment, formalisation

and circular economy under the Team Europe Initiative on Jobs through trade and investment for the

Southern Neighbourhood, in close cooperation with EU Member States, the EIB, EBRD, ETF and the

Union for the Mediterranean. In Yemen, the EU supported economic growth and employment

opportunities by promoting private sector growth, sustainable climate infrastructure, economic

resilience as well as sustainable farming practices and water management to address food insecurity.

In addition, the EU continued to support financial inclusion through the SANAD Fund, enabling 448,000

jobs across the Middle East and North of Africa region since 2018. As one of the region's largest job

creators, SANAD disbursed approximately EUR 1.98 billion (current exchange rate) through debt and

equity sub-funds, with 41% benefiting women, 57% aiding rural and semi-urban borrowers, and 20%

reaching young clients. 96.5% of all sub-loans were disbursed in local currency, across target countries

like Jordan, Lebanon, Palestine, Syria, Iraq, Yemen, Egypt, Tunisia, Algeria, and Morocco. SANAD's

equity investments in microfinance institutions and fintech companies are pivotal to institution-

building and to broaden economic access.

Digitalisation, science, technology, innovation and infrastructure

Regionally, In the field of digital, the EU supported the development of the Medusa subsea cable, who

completed its first landing in 2025 by connecting Marseille (France) with Bizerte (Tunisia) and Nador

(Morocco), and the connection of EU national research and education agencies with the Arab agencies

network, laying the ground for further expansion in 2026. It also started a new initiative supporting

the digital transformation in partner countries focusing on regulatory reforms, cybersecurity, and

digital skills. The European Commission also started its development of the EU digital tech business

offer for the region. Bilaterally, the EU supports partner countries to digitalise public services to

improve service delivery notably in Morocco.

In the field of transport, the EU continued supporting the improvement and harmonisation of

maritime safety, security and environment standards through its collaboration with the European

Maritime Safety Agency in the Southern Neighbourhood and started a new collaboration with

European Financing Institutions and development agencies to develop sustainable urban mobility in

partner countries.

The EU has continued to develop its engagement on higher, education, research and innovation,

notably with North African countries. As first African and Arab country associated to Horizon Europe,

Tunisia has mobilised EUR 16.07 million under Horizon Europe, with 66 signed projects. Egypt

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successfully completed the association to Horizon in 2025 and is actively engaged in the Partnership

for Research and Innovation in the Mediterranean Area (PRIMA). Negotiations with Morocco and

Algeria have continued in 2025 to ensure participation to the Partnership for Research and Innovation

in the Mediterranean Area (PRIMA) for the period 2025-2027. Bilaterally, support is given to ensure

partner countries make the best use of opportunities offered under Erasmus+ or Horizon Europe. For

example, the ‘Ipticar’ twinning began delivering results in Algeria, with three joint master’s

programmes with European universities entering the operational phase, Horizon Europe training

reaching 39 research groups and academics from five universities, and 12 outreach events gathering

over 400 participants. A technical assistance contract was also signed to support the Ministry of Higher

Education and Research in assessing socio-economic sector needs.

At country level, Libya’s 2025-2027 programme includes a dedicated component on digital

transformation.

Migration and forced displacement

The EU adopted in December 2025 a Multiannual Action Programme 2025-2027 for migration in the

Southern Neighbourhood, focusing on protection, migration governance, including border

management and counter migrant smuggling actions, return and reintegration, legal migration and

mobility. EUR 208 million from 2024 budget were contracted in 2025 for actions in the area of

migration governance (EUR 86 million), protection (EUR 53 million), return (EUR 56 million) and legal

migration and mobility (EUR 13 million) implemented in the five north Africa countries.

In Syria and neighbouring countries, EU support continued to tackle the long-term impacts of

displacement, using the legacy and follow-up of Madad to sustain access to education, health, WASH

and livelihoods for refugees and host communities. In Lebanon and Jordan, assistance under the Syria

response included support for basic services, social assistance and resilience, while in Libya and other

North African countries, EU programmes addressed migration management capacities, protection

needs in fragile contexts, and voluntary return and reintegration mechanisms.

Globally, the EU reinforced a human rights based approach to migration and launched a new action

on the financial and digital dimensions of migrant smuggling, which is also relevant for Mediterranean

routes.

Governance, peace and security

Governance, peace and security cooperation in the Southern Neighbourhood and Middle East in 2025

was shaped by conflicts in Gaza, Syria, Libya and Yemen and by wider regional tensions. A regional

action ‘Safeguard of basic rights and democratic governance in the Southern Neighbourhood’ was

adopted for 2025-2027, with almost half its budget at regional level, supporting human rights,

democratic governance, rule of law and civil society across the region.

In Libya, the new 2025-2027 programme included EUR 55 million for governance and stabilisation,

aiming to strengthen institutions, local governance and reconciliation. In Syria, a EUR 175 million

package focused on institutional capacity-building, socio-economic recovery, transitional justice,

accountability and social cohesion. In Yemen, the EU also addressed drivers of instability through

peace and mediation efforts, including by fostering local demand for peace, implementing measures

agreed upon between the parties and expanding civil society space, with the broader objective of

contributing to stability in the Red Sea region. Additionally, the EU worked on developing nexus

approaches on mediation.

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In Palestine, the Comprehensive Programme for Palestinian Recovery and Resilience 2025-2027 (EUR

1.6 billion) linked EU support to agreed reform priorities, including governance and fiscal

sustainability, and was accompanied in November 2025 by the establishment of the Palestine Donor

Group to coordinate international efforts to support the Palestinian authority in its reforms agenda.

Food security and nutrition

Food security challenges in the Southern Neighbourhood and the wider Middle East have been

exacerbated by conflict, climate change and economic crises.

In Syria and neighbouring countries, EU crisis response and development programmes addressed food

insecurity through support to livelihoods, social protection and basic services for refugees and host

communities. In Lebanon, EU support to water, wastewater and energy services under crisis

conditions helped prevent further deterioration of public health and food security conditions. In

Yemen, the SIERY project’s restoration of public services and support to fisheries, agriculture and

apiculture improved livelihoods and access to food for thousands. The EU’s support in the region also

focusses on developing a resilient and modern agriculture sector.

In Algeria, EU support to agricultural innovation advanced through the ‘Innov-Agro’ programme (2024-

2028; EU grant: EUR 6.9 million; German co-financing: EUR 1 million), which selected 40 entrepreneurs

and 21 agri-tech start-ups for a two-year mentoring track combining technical assistance and access

to financing, as well as the signature of the ‘PASA+’ programme (amounting to EUR 15 million)

between the EU and the Italian cooperation to support sustainable agriculture practices with a focus

on SME development.

Territorial and cross-border cooperation

Territorial and cross-border cooperation advanced through new and existing frameworks as well as

corridor-based approaches. The Pact for the Mediterranean, launched in Barcelona in 2025, set a

renewed partnership for a ‘Common Mediterranean Space’ built on co-ownership and shared

responsibility, and integrates economic, social and security dimensions, including connectivity and

energy transitions. Under this umbrella, the EU has been working with southern Mediterranean

partners on a number of areas of mutual interest, across the three pillars of the Pact: people, stronger,

more sustainable and integrated economies; security, preparedness and migration management. In

addition, Interreg cooperation programmes continued to foster multi-country cooperation between

EU Member States and Southern Neighbourhood countries. In 2025, the Interreg NEXT MED

programme allocated over EUR 115 million to joint partnerships across a range of key sectors,

includingclimate change actions, SME competitiveness as well as bottom-up and participatory

approaches.

In Algeria, this approach was reflected in the launch of ADIL (Appui au Développement Intégré Local),

a programme co-financed by the EU (EUR 20 million) and the Dutch Ministry of Foreign Affairs (EUR

1.8 million). Launched in September 2025, ADIL supports decentralisation reforms, local governance

and integrated territorial development.

The India–Middle East–Europe Economic Corridor (IMEC), while still in preparation in 2025, illustrated

how corridor-based Global Gateway approaches can link the Gulf, Levant and Europe through

sustainable infrastructure and trade routes.

Beyond IMEC, cooperation with the Gulf region expanded significantly in 2025. The EU stepped up its

cooperation with the Gulf Cooperation Council (GCC) on various policy areas of common interest,

including digital and energy interconnections. Additionally, in response to partners’ requests for

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reinforced bilateral legal frameworks, the EU offered to open negotiations on Strategic Partnership

Agreements (SPAs) with all six GCC countries − Bahrain, Kuwait, Oman, Qatar, Saudi Arabia, and the

United Arab Emirates. The SPAs provide for ambitious, modern, comprehensive and effective legal

frameworks for bilateral cooperation tailored to the shared priorities and objectives of the EU and

each GCC partner. By December 2025, five of the six countries had responded positively to this offer,

and negotiations were officially launched with the United Arab Emirates and Qatar.

Finally, the EU Commission contributed to the EEAS-led Red Sea task force, mapping current initiatives

contributing to the stability of the region.

Case study - Global Gateway in the Mediterranean: Medusa Submarine Cable System

Under Global Gateway in the Mediterranean, the Medusa Submarine Cable System landed in Nador

(Morocco) in December 2025, following the earlier deployments in Marseille (France) in October and

Bizerte (Tunisia) in November 2025, reinforcing the system’s progression across both shores of the

Mediterranean.

The milestone underscored the project’s mission to strengthen digital infrastructure by providing

resilient, high-capacity connectivity routes between Europe and North Africa. This investment

enhances the region’s strategic role in global data flows and supports the growing demand for secure

and reliable international bandwidth. The EU financing aims to foster research collaboration between

EU and North Africa universities through strengthen digital connectivity. With ongoing deployments

planned for 2026 towards the East of the Mediterranean, Medusa continues to advance towards full

system implementation, consolidating its role as a transformative project for regional and

international telecommunications.

4.5.2.3. Humanitarian aid and civil protection – responding to the emergency needs of people affected

by conflicts and disasters

In 2025, the Southern Neighbourhood and the wider Middle East/Gulf remained among the regions

with the gravest humanitarian needs, driven by protracted conflicts, political instability, economic

crises and climate- and weather-related shocks. The war in Gaza continued relentlessly, with

catastrophic humanitarian consequences. During this period, the situation in Gaza could only be

described as an extreme humanitarian emergency, with massive civilian casualties, displacement and

destruction of infrastructure, with direct implications on the vulnerable population, including famine.

Humanitarian needs in all sectors remain enormous. The entire population of Gaza (2.1 million) is

exposed to security and protection risks and forced displacement. Basic services have all but collapsed.

The population has scant access to food, water, health or education, while they remain constrained

to a fraction of the territory, living in appalling conditions that exacerbate public health risks. A

ceasefire launched in October 2025 contributed to a reduction in violence and some improvement in

the flow of humanitarian aid, albeit of limited scope and duration, as administrative constraints

severely impede humanitarian support.

The EU humanitarian assistance to the people of Palestine focused primarily on life-saving health care,

food and nutrition, water, sanitation and hygiene (WASH), shelter and protection, including for

children and women. EU humanitarian funding was channelled through principled humanitarian

partners, notably UN agencies, the International Red Cross and Red Crescent Movement and

non-governmental organisations, in line with humanitarian principles and international humanitarian

law. The EU allocated EUR 220 million in 2025 for humanitarian aid in Palestine. The EU also continued

operational support to partners with 32 EUHABs, transporting 2 705 metric tonnes of aid, including

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554 metric tonnes of EU stockpiles donated to partners. In addition, the EU supported the organisation

of road convoys delivering nearly 1 400 tonnes of humanitarian cargo.

In Lebanon, beyond the regular programming to address the pre-existing crises, the EU allocated an

additional EUR 25 million in humanitarian funding to provide crucial support (in terms of food,

protection, shelter, and health services) to populations affected by the conflict between Hezbollah

and Israel, which led to large-scale displacement. The total EU humanitarian funding in 2024 exceeded

EUR 92 million. In addition, under Lebanon’s request for assistance via the UCPM, medical and shelter

items were delivered throughout 2025.

In Syria and neighbouring refugee-hosting countries, the EU and its Member States remained

collectively the largest donor. Since 2011, over EUR 37 billion has been mobilised for Syrians inside

the country and in Lebanon, Jordan, Türkiye, Iraq and Egypt, including EUR 2.49 billion inside Syria.

Humanitarian operations in 2025 continued to provide food, health, WASH, shelter, protection and

education in emergencies, while supporting early-recovery activities where feasible. In July 2025, the

Syrian Civil Defense Forces requested assistance via the UCPM following multiple wildfires affecting

northwestern Syria. In response, firefighting equipment was delivered in August 2025.

Elsewhere in the region, the EU continued to support refugees and displaced population of protracted

and new crises and disasters in Libya, Yemen and other parts of North Africa and the Middle East. In

Yemen, humanitarian aid continued to tackle severe food insecurity, disease outbreaks and the impact

of protracted conflict, in complementarity with development and peacebuilding initiatives that

restore public services and support livelihoods.

In Libya, the south-eastern region of Al Kufra experienced a significant influx of Sudanese refugees,

with daily new arrivals, over half of them women and children. Recent data estimates a presence of

more than 514 000 refugees, amidst a deteriorating protection environment. In parallel, the increased

demand for services has overwhelmed local resources. In this context, the EU mobilised EUR 2 million

for response in Al Kufra, one of the areas mostly affected by the arrival of Sudanese refugees.

Egypt hosts over 1.5 million refugees and asylum seekers, with Sudanese refugees constituting 76% of

all registered refugees since the conflict in Sudan began in April 2023. With a shrinking asylum space

coinciding with a context of economic crisis for the host population, Sudanese refugees face severe

and multiple increasing barriers in accessing basic services, including health care and education, while

the protection environment has seen a deterioration. In this context, the EU mobilised EUR 9 million

in 2025 to meet the basic needs of the most vulnerable and enable safe and sustainable access to

quality education targeting out of school children.

Still without a resolution for the five-decade long political conflict, tens of thousands of Sahrawi

refugees remain stranded in a forgotten and protracted humanitarian crisis. Gathered in five camps

around Tindouf in the Algerian Sahara Desert, the Sahrawi refugees depend on external humanitarian

assistance for their subsistence. The political sensitivities, as well as extreme conditions thwart any

short-term perspectives for return, integration or resettlement and deter the interest of development

organisations. In 2025, the EU deployed projects amounting to EUR 9 million to respond to the basic

need of Sahrawi refugees in camps. This amount includes EUR 5 million provided for food and nutrition

assistance. Other assistance included support to improve the quality of primary education, the supply

of essential medicines and the provision of safe drinking water.

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4.5.2.4. Crisis response and preparedness

In 2025, the EU strengthened crisis response and preparedness in the Southern Neighbourhood and

the Middle East/Gulf by combining the rapid-response pillar of NDICI–Global Europe, humanitarian

aid, civil-protection tools, macro-financial support and Global Gateway investments within a

humanitarian–development–peace nexus.

Under rapid-response, the EU supported measures in situations of fragility, (post-)conflict, forced

displacement and climate- and environment-related shocks. In Syria and neighbouring

refugee-hosting countries, crisis-response actions complemented large-scale humanitarian aid and

the legacy of the Madad Trust Fund by promoting social cohesion, local governance, livelihoods and

access to basic services for refugees, internally displaced people and host communities. Crisis-

response actions also supported the establishment of the national mine-action centre (NMAC), and

the reduction of risks from explosive ordnance, while advancing stabilisation in the North-East through

learning opportunities and light rehabilitation of key infrastructure and community-based services. In

Iraq, reintegration support was provided to almost 5 000 individuals returning from North-East Syria,

combined with broader stabilisation efforts to promote community acceptance and prevent renewed

cycles of violence. In Yemen, programmes such as SIERY strengthened local governance, restored

public services and supported key value chains, improving communities’ ability to withstand shocks

and reducing the risk of renewed escalation, while supporting the mediation efforts of the UN Office

of the Special Envoy of the Secretary-General for Yemen (OSESGY). In Libya, a new 2025-2027

programme integrated governance, stabilisation, climate, energy and environment, targeting root

causes of fragility and enhancing institutional preparedness. Crisis response actions supported the UN-

led peace process and political mediation.

In Israel and Palestine, crisis response actions put in place a substantial civil society portfolio,

supporting some 50 Israeli and Palestinian organisations on dialogue, grassroot engagement and

independent media. Communities in Gaza were provided with healthcare and psychosocial services,

as mine action support protected them from risks of explosive ordnance and facilitate humanitarian

access. EU’s engagement in the Middle East Peace Process was reinforced by supporting a Women’s

Advisory Council and the Global Alliance for the implementation of the two-State solution. In Lebanon,

crisis response actions strengthened the Lebanese Armed Forces and Internal Security Forces’

stabilisation capacities.

At regional level, the Pact for the Mediterranean provided a framework for an integrated approach to

risk, linking conflict prevention, hybrid-threat resilience and climate- and disaster-risk management

with economic, including macroeconomic support, and social cooperation. The establishment of the

MENA Investment Platform under Global Gateway and flagship initiatives such as the

Trans-Mediterranean Renewable Energy and Clean Tech Cooperation Initiative (T-MED) aimed to align

infrastructure and energy investments with resilience and decarbonisation objectives, while country

investment platforms in Morocco, Egypt and Jordan prepared pipelines of projects that support both

growth and crisis-resilient services.

4.6. Overseas countries and territories (OCTs)

4.6.1. Introduction (policy developments)

In 2025, the European Union further consolidated its partnership with the 13 Overseas Countries and

Territories (OCTs), which, while not part of the EU, maintain special constitutional links with Denmark,

France and the Netherlands and form an integral part of the wider European family as their citizens

are EU citizens. The OCTs play an increasingly strategic role for the EU as outposts of its values and

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interests in the Atlantic, Antarctic, Arctic, Caribbean, Indian and Pacific regions, having vast Exclusive

Economic Zones, rich natural resources, and providing strategic access to key maritime zones and sea

routes. Despite their diversity, the OCTs continue to face common structural constraints: remoteness,

small domestic markets, strong dependence on imports, limited economic diversification, gaps in

connectivity and restricted administrative capacity. These specificities make it essential to support

their resilience and competitiveness through investment in connectivity, the green and digital

transitions and human capital, in line with the Global Gateway strategy.

The partnership is framed by the Decision on the Overseas Association including Greenland (DOAG),

which for 2021-2027 earmarks EUR 500 million to support OCTs’ sustainable development. Priority

sectors include connectivity, energy, education or biodiversity and climate. In 2025, implementation

of the multiannual indicative programmes progressed well, while project pipelines increasingly

reflected Global Gateway-type investments in sustainable infrastructure, green and blue economies

and digital connectivity.

Reflecting the significance of the OCTs, the European Commission proposed an amendment to the

Decision on the Overseas Association, including Greenland (DOAG), which entails doubling the funds

allocated to the OCTs to EUR 999 million.

Regular institutional and policy dialogues with all OCT authorities continued to support and inform the

partnership in 2025, through three tripartite meetings that brought together OCT authorities, the EU

Member States concerned and the European Commission to review progress and adjust priorities. The

dialogue underlined that the OCTs’ importance in building alliances and addressing common

challenges across respective regions.

Relations with Greenland continued to expand in a context of heightened international interest for

the Arctic. Following the opening of the EU office in Nuuk in 2024 and the first EU business mission,

cooperation in 2025 further broadened from the traditional focus on education towards green growth,

including the sustainable development of raw-material value chains digital connectivity, renewable

energy and sustainable tourism. The EU-Greenland partnership was also marked by two policy

dialogues, high-level visits and the inaugural EU-Greenland Week in November, in Brussels. This event

brought together public and private stakeholders to advance the partnerships in key strategic sectors

by focusing on specific investment opportunities.

At the same time, OCTs in the Pacific and Caribbean were increasingly integrated into regional Global

Gateway initiatives with an emphasis on strengthening the investment agenda and expanding regional

cooperation. In 2025, the three Pacific OCTs participated in the first EU Pacific Business Forum held in

Fiji in September 2025, while several Caribbean OCTs attended the EU–LAC Business Forum in

November 2025.

4.6.2. Implementation

Human development and inequalities

In Greenland, education support under the DOAG was ongoing in 2025 and targeted re- and

up-skilling, improved vocational curricula and student well-being, with the objective of enhancing

learning outcomes and entrepreneurial and innovation skills in emerging sectors such as sustainable

raw materials and renewable energy. Gender equality remained a cross-cutting priority, with new

actions to develop gender-sensitive indicators and sex-disaggregated data wherever possible.

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Green Deal

Climate adaptation, biodiversity and clean energy remained important components of the OCTs-EU

cooperation. The 11th EDF ‘Green Overseas’ (GO) programme supported all OCTs in advancing

sustainability, resilience, and low-carbon development, including through preparatory work for

renewable-energy projects deployments. Regional biodiversity-related programmes delivered

tangible results. In the Pacific, the PROTEGE programme (EUR 36 million) showed significant

achievements in agroecology, water management and the fight against invasive alien species. Lessons

learned are being incorporated into the design of a new regional programme (EUR 36 million)

dedicated to ‘blueing and greening’ food systems. In the Caribbean, the RESEMBID programme (EUR

42.67 million) came to an end in 2025 after having implemented 48 projects across 12 OCTs advancing

clean energy, and safeguarding oceans. The preparation for a new EUR 21 million DOAG programme

to support sustainable management of natural capital continued in 2025. In the Indian Ocean, the new

MARIO programme (EUR 4 million) started its implementation, to enhanced biosecurity, ecological

restoration and eradication of invasive species in the French Southern and Antarctic Territories, to

further preserve marine ecosystems.

The first intra-regional programme for the TAAF, GOPI (Management of Ungulates and Introduced

Predators in the TAAF and La Réunion), was also adopted in November 2025 to strengthen biodiversity

protection through the management of invasive species and to promote regional cooperation in the

south-west Indian Ocean.

Through BESTLIFE2030, OCTs received grants to scale up biodiversity and nature-conservation.

The energy transition was also supported through bilateral programmes: in New Caledonia with EUR

30.9 million to decarbonise the mining sector, in Saba with EUR 4.1 million for a low-carbon energy

mix, and in Greenland within a EUR 22.5 million Green Growth programme aiming at 90% renewables

in public electricity.

Sustainable growth and jobs

Sustainable local development and job creation are promoted through green and blue economies and

tourism. DOAG-funded territorial programmes include sustainable tourism in

Saint-Pierre-et-Miquelon (EUR 27 million) and Wallis and Futuna (EUR 20.4 million), sustainable

agriculture in Sint Eustatius (EUR 2.9 million), a Green Growth programme in Greenland (EUR 22.5

million) and an e-government programme in Aruba (EUR 14.2 million).

A first OCT Business Forum in the Pacific brought together public and private stakeholders to explore

investment opportunities, in line with Global Gateway and in a ‘Team Europe’ approach. OCTs also

remained eligible for InvestEU, opening further avenues for mobilising private and public investment

in sustainable infrastructure, innovation and SMEs.

Digitalisation, science, technology, innovation and infrastructure

Digitalisation is a key lever for modernising public administration and services in the OCTs. The

e-government programme in Aruba (EUR 14.2 million) supported the implementation of the territory’s

e-government strategy, including setting up digital work processes, an e-ID system, a cybersecurity

policy framework and digital payments. The aim is to ease online access to government services and

unlock new economic opportunities, particularly for women and young people. STEM-focused

higher-education investments in Aruba and innovation-oriented green-growth programme in

Greenland also contributed to building a skilled workforce for the digital and green transitions.

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Digital connectivity has been chosen as priority sector for the Intra-regional cooperation in the

Caribbeans thereby contributing to Global Gateway’s green and digital twin transition in cooperation

with neighbouring regions.

Migration and Forced Displacement

Migration and forced displacement are not a stand-alone area of OCT cooperation, but programmes

on education, youth, food systems and energy security contribute indirectly to addressing the drivers

of out-migration by improving livelihoods, resilience and access to services in small island economies.

Governance, peace and security

Actions in the OCTs are designed to reinforce institutional capacity, accountability and inclusiveness.

This is typically pursued through budget support, policy dialogue on sector reforms and cooperation

on public-finance management. The OCT Youth Network (OCT-YN), launched in 2022, enabled 25

young people to follow a learning path on the EU-OCT partnership and EU institutions, while

networking with policymakers and peers. In 2025, the third cohort completed its mandate.

Food security and nutrition

OCTs face specific food-security and nutrition challenges due to remoteness, small markets and import

dependence. The EU supported sustainable agriculture, food security and nutrition through several

OCT-focused actions. In 2025 new programmes were prepared: the EUR 36 million ‘blueing and

greening of food systems’ regional programme for the Pacific will promote sustainable production and

healthy food consumption while in the Caribbean, the natural-capital programme (EUR 21 million) will

strengthen food and nutrition security by developing sustainable and resilient local food value chains.

Case study on Sustainable Water Management in French polynesia

For French Polynesia, ensuring access to drinking water and sanitation services is a key challenge due

to the territory’s geographical characteristics, with 118 islands, of which 76 are inhabited, spread over

2.5 million km² of ocean. In 2021, the territory adopted its first Water Policy (2021-2030), aimed at

improving water services, preserving water resources and strengthening water governance.

Since 2023, the EU has been supporting the implementation of this policy through a EUR 31.1 million

budget support programme. The first Water Policy Action Plan (2021-2025) is set to improve drinking

water and sanitation services, strengthen knowledge and monitoring of water resources, and establish

an adapted governance framework for the sector.

In 2025, EU budget support contributed to the final year of implementation of the first Action Plan.

Results achieved included an increase in the number of municipalities distributing drinking water,

continued actions to secure water catchment areas, and the strengthening of sector governance

through a fully operational technical committee. These efforts support the implementation of the

Water Policy. A second Action Plan is scheduled to cover the period 2026-2030.

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4.6.3. Humanitarian aid and civil protection – responding to the emergency needs of people

affected by conflicts and disasters

OCTs remained highly exposed to climate- and weather-related disasters, including cyclones, storms,

floods, droughts, coastal erosion and, in some cases, volcanic and seismic risks. No large standalone

humanitarian operations were reported specifically for OCTs.

4.6.4. Crisis response and preparedness

In 2025, work focused on strengthening resilience to increasingly frequent and intense climate- and

weather-related shocks, while aligning with the green, blue and digital transitions. Given OCTs’

exposure to cyclones, storms, floods, droughts, coastal erosion and, in some cases, volcanic and

seismic risks, EU support prioritised risk-reduction, early-warning and contingency planning rather

than large stand-alone emergency operations.

Regional programmes financed under the Green Overseas (GO) initiative and subsequent DOAG

actions were central to preparedness. PROTEGE and its follow-up ‘blueing and greening of food

systems’ programme in the Pacific, RESEMBID in the Caribbean and RECI in the Indian Ocean

supported ecosystem-based adaptation, resilient infrastructure, sustainable land and marine

management and community-level preparedness, thereby reducing disaster risks and the social and

economic impact of crises. The GO Facility also helped OCTs develop bankable climate-resilience

projects and improved access to climate finance, including through a dedicated Climate Finance

Forum.

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5. Managing aid

5.1. Monitoring, reporting and evaluation

5.1.1. Reporting

Reporting on the implementation of the European Union’s external action instruments in 2025 was

based on a consolidated set of corporate results frameworks, management reports and financial and

performance information systems. Together, these provide a coherent picture of how interventions

funded under the multiannual financial framework (MFF) contribute to the European Union’s policy

priorities and to international commitments, including the 2030 Agenda.

Reporting on the NDICI−Global Europe instrument

For the Neighbourhood, Development and International Cooperation Instrument – Global Europe

(NDICI−Global Europe), the Global Europe Results Framework (GERF) remained the main tool to

monitor and report on progress towards the objectives of the instrument. GERF indicators, which

cover all regions and modalities under NDICI−Global Europe, including the European Fund for

Sustainable Development Plus (EFSD+), were populated using project and programme logframes,

external monitoring, evaluations and other existing results reporting. In 2025, the quality-assurance

system for GERF and the EU Results Framework (EURF) was further strengthened.

2025 is the fifth year of financial execution of the NDICI−Global Europe, and an increasing volume of

operational results has now materialised. Nevertheless, many results are expected to materialise

towards the end of the current MFF, due to the inevitable time lag between financing an intervention,

implementing the action and generating results.

This time lag between financing and results is a structural feature that is common to any MFF cycle.

As the same is true for the previous MFF, Chapter 6 of this report presents the results of both the

current and the previous MFF. Results data presented in Chapter 3 of this report refer to results

achieved from ongoing interventions, financed under the current MFF.

Reporting on the IPA III instrument

For the Instrument for Pre-Accession Assistance (IPA III), reporting continued to be structured around

the IPA III Programming Framework and the IPA III Results Framework. The framework is organised by

thematic ‘Windows’, each with priorities, indicators, baselines and targets that mirror the revised

enlargement methodology. These indicators underpin monitoring, reporting and evaluation of

progress by enlargement partners and inform the narrative on reforms and approximation to the

acquis.

As with NDICI−Global Europe, 2025 was still marked by the structural time lag between commitments,

implementation and observable results. A significant share of outputs and outcomes financed under

the current multiannual financial framework is expected to materialise closer to its end; results

reported in this Annual Report therefore combine data from interventions financed both under the

previous and the current framework.

5.1.2. Monitoring systems

Over the past years, the Commission has engaged substantially in designing tools and processes for

performance-based management. This aims to strengthen evidence-based decision-making, facilitate

monitoring and results reporting, and respond to the growing need for reliable data to capture the

results of EU external action. It is set in a wider transition, moving from a focus on inputs (mostly

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financial) to capturing the EU contribution to the achievement of intended objectives in the field of

external cooperation, an area where being able to measure the impact of actions on target

populations and systems is essential.

Various internal and external monitoring arrangements are in place to assess implementation

progress, achievement of objectives and emerging results, each serving different operational and

accountability purposes. Among these, ROM reviews provide operational staff with an external and

impartial assessment of ongoing interventions. The number of ROM reviews performed in 2025 was

63 under NDICI−Global Europe and 36 under IPA III. Due to a new contract for ROM reviews under

NDICI, the reviews conducted in 2025 were limited.

The IT platform OPSYS is used as a standard tool to capture results for corporate reporting and

management in external action. OPSYS creates a digital repository of EU-funded operations and

provides central access to all stakeholders involved, both inside and outside the Commission. It

assumes a pivotal role in ensuring that the Commission can deliver on the ambitious reporting

obligations set for implementing the NDICI−Global Europe and IPA III instruments.

The Commission, the EU Delegations and our implementing partners perform monitoring activities via

the same tool, including direct reporting by implementing partners and Commission staff, and data

aggregated centrally for reporting by the Commission. There are now 17 341 interventions encoded

in OPSYS and 3 633 NDICI−Global Europe primary interventions were involved in the last results

reporting exercise.

5.1.3. Reporting on Sustainable Development Goals (SDGs)

Reporting on the Sustainable Development Goals (SDGs) in 2025 continued to be embedded in the

European Union’s external action performance framework. SDG reporting remained closely linked to

the corporate results frameworks and to the monitoring and evaluation systems described in the

sections on reporting and monitoring.

A key feature of the reporting methodology is the systematic tagging of each operation to one main

SDG and, where relevant, up to nine additional ‘significant’ SDGs. This approach reflects the

interlinked nature of the 2030 Agenda and ensures that the total volume of commitments and

payments can be consistently tracked while making visible the multiple SDG contributions of each

intervention. The same main/significant tagging logic is applied to Global Gateway projects and

flagship initiatives recorded, since 2024, on the Global Gateway platform, creating a single SDG lens

across EU external investment.

For ODA, the EU continued in 2025 to report its SDG contributions in line with the taxonomy agreed

in the OECD Development Assistance Committee (DAC) Working Party on Development Finance

Statistics. Targeted SDGs are recorded at commitment and payment stages, which allows aggregation

of EU contributions to each goal in line with other major providers. In parallel, the EU further used the

international standard on Total Official Support for Sustainable Development (TOSSD(56)) to capture

the wider set of officially supported resources that advance sustainable development, including

non-ODA official flows and private finance mobilised by public interventions, in a manner that shows

contributions to the SDGs.

56 https://team-europe-explorer.europa.eu/tossd_en

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The EU continued to roll out and refine its SDG Mapper(57). This text-based tool helps operational staff

identify the most relevant SDG targets and indicators for a given intervention. SDG reporting is

complemented by other corporate markers – notably gender and inequality markers.

The figures below show the volume of commitments by SDGs funded by NDICI−Global Europe. The

bar with saturated colour represents the financial flows to the main SDG while the bar with

transparent colour shows the contributions to other significant SDGs, thereby unveiling the

interlinkages across SDGs that are addressed through EU actions.

Figure 9. Synthesis of the volume of Commitments for each SDG (as main SDG and significant SDG) in

2025 – NDICI funded projects

Figure 10. Commitments (NDICI-GE) by SDG to Least Developed Countries (LDCs) in 2025 (million

EUR)

57 https://knowsdgs.jrc.ec.europa.eu/sdgmapper

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Figure 11. Commitments (NDICI-GE) by SDG to Upper Middle-Income Countries (UMICs) in 2025

(million EUR)

Analysing targeted SDGs by income group of countries shows how EU priorities are implemented

depending on countries’ income levels.

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Figure 12. Relationship between SDGs commitments by SDG in 2025 – NDICI−Global Europe (EUR)

To assess the interlinkages between SDGs, figure 12 illustrates the relationship between main and

significant SDGs. It also confirms the highly integrated nature of the SDG.

5.1.4. Evaluation – review of the work programme

Strategic and thematic evaluations continued to provide evidence on the effectiveness and added

value of the Union’s external action. The evaluation of the EU Gender Action Plan III (GAP III) for

example confirmed that gender mainstreaming has been significantly strengthened across external

action, while underlining uneven implementation across regions and sectors and the need to focus

more strongly on transformative outcomes for women and girls in key Global Gateway sectors such

as green and digital. A strategic evaluation of the ‘Team Europe’ approach launched in 2025 is

expected to guide the deepening of joint programming, joint implementation and coordinated policy

dialogue with EU Member States and European financial institutions, including through Team Europe

Initiatives in priority regions. Such evaluations are being used to fine-tune the 2026–2027

programming.

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In 2025, the Commission completed 6 strategic evaluations in the field of EU external and

humanitarian action comprising:

• Evaluation of EU cooperation with South Sudan (2011-2023)

• Evaluation of the EU's support to partner countries in the education sector (2014-2024)

• Intermediate Evaluation of the implementation of the EU's Gender Action Plan III (2021-2027)

• Global case study on small island developing states contributing to the strategic evaluation of

the collective international development response to the COVID-19 pandemic

• Evaluation of the EU’s humanitarian interventions in Southern Africa and the Indian Ocean

(SAIO) region, 2019-2023

• Evaluation of DG ECHO’s Water, Sanitation and Hygiene (WASH) policy, 2019-2023

By the end of 2025, 16 other strategic evaluations were in progress for the following areas:

• Evaluation of the European Union’s Trust Fund Bekou for the period 2014-2023

• Evaluation of the European Union’s regional cooperation with ASEAN (2014-2024)

• Evaluation of the European Union’s cooperation with Bangladesh (2014-2024)

• Evaluation of the European Union’s cooperation with the Federal Republic of Nigeria (2014-

2024)

• Strategic Evaluation of the EU partnership with Mozambique (2014-2023)

• Strategic Evaluation of the EU partnership with the Democratic Republic of Congo (2021-2024)

• Strategic evaluation of the partnership between the EU and the Republic of Guinea (2014-

2024)

• Final Evaluation of the EU Emergency Trust Fund for stability and addressing root causes of

irregular migration and displaced persons in Africa (2015-2024)

• Mid-Term Evaluation of the Implementation of the Youth Action Plan in EU external action

(2022-2027)

• ‘Working Better Together as Team Europe’: Strategic evaluation of the Team Europe approach

(2020-2024)

• Comprehensive evaluation of the European Commission’s Humanitarian aid, 2017-2022(58)

• Evaluation of DG ECHO’s approach to reducing the environmental footprint of humanitarian

aid, 2020–2024

• Evaluation of the European Union’s Humanitarian Interventions in Afghanistan, 2020-2024

• Evaluation of Education in Emergencies in EU-funded Humanitarian Aid Operations, 2020-

2024

• Evaluation of DG ECHO's humanitarian response in Ukraine, 2020-2024

• Evaluation of the EU support to Public Administration Reform with a focus on Public Finance

Management in the Enlargement and Neighbourhood Regions (2016-2023)

58 The external supporting evaluation study was completed in 2025 while the Commission Staff Working document was formally adopted in February 2026. The evaluation was published in 2026.

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5.1.5. Lessons learned

Evaluation of EU cooperation with South Sudan (2011-2023)(59)

The evaluation provided an independent assessment of the performance of the cooperation managed

by European Commission in South Sudan, including the EU Trust Fund for Africa and the Foreign Policy

Instrument, but excluding humanitarian aid. It covered financial assistance, political and policy

dialogue, and the alignment of interventions with national priorities. The total spending reached EUR

521 million (aside from EUR 959 million in humanitarian aid) over the period. In view of the

considerable scope, the evaluation used a combination of primary and secondary data: an extensive

portfolio analysis (including a quantitative analysis of budget allocations), a review of the results

attained for a sample of 51 interventions, and a series of five field case studies.

The following points summarise the main lessons from the evaluation:

• Flexibility and Adaptability

The EU's ability to adapt programming to South Sudan’s volatile context, such as through the

triple nexus approach, was critical for maintaining relevance. Regular adjustments to priorities

ensured responsiveness to emerging needs.

• Integrated Approaches to Resilience

Combining sectoral strategies, such as linking infrastructure with agricultural productivity,

amplified impacts. This demonstrates the value of integrated approaches in fragile settings.

• Coordination and Partnerships

Active participation in donor coordination mechanisms, such as pooled funds and joint

programming, enhanced coherence and avoided duplication of efforts.

• Focus on Localised Solutions

Interventions like area-based programming showed success in aligning with local contexts and

addressing community-specific needs.

• Staffing and Institutional Memory

High turnover at the EU Delegation and insufficient onboarding processes resulted in

knowledge gaps and operational inefficiencies. This underlines the need for robust knowledge

management systems.

• Coordination Gaps in Triple Nexus Implementation

Misalignment between humanitarian and development programming cycles created

challenges in operationalising the triple nexus effectively, and could be overcome through

area-based management – which is insufficiently developed.

• Difficult Strategic Engagement with Governance

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Inadequate engagement with state governance structures weakened the institutional impact

of EU interventions.

Intermediate Evaluation of the implementation of the EU's Gender Action Plan III (2021-2024) (60)

The evaluation focused on the implementation of the Gender Action Plan (GAP) III mid-way through

its expected duration (2021-2027) and the results achieved to date in the three areas of engagement:

(1) green transition; (2) digital transformation; and (3) EU support promoting gender equality and

women empowerment (GEWE) through engagement with, and support to, women’s rights

organisations (WROs) and other civil society organisations (CSOs), with a specific focus on conflict,

post-conflict and other fragile contexts. The evaluation also provided a set of recommendations for

the continued implementation of GAP III and beyond.

A series of conclusions emerged from the findings of the evaluation:

• The three-pronged approach of gender mainstreaming, targeted action and political dialogue

has contributed to a more coherent and strategic EU approach but remains insufficiently

integrated across the digital and green areas of engagement.

• The EU’s comparative advantage lies in its convening power and ability to link local

interventions with policy dialogue, yet this potential remains underused.

• EU gender capacity gaps at country level hindered the EU’s transformative ambition.

• Gender mainstreaming has reached scale but remains uneven in quality and depth.

• Intersectionality was increasingly acknowledged, though only partially translated into

practice.

• The EU’s support has produced tangible results on advancing GEWE and laid entry points for

transformative change in some contexts.

• Partnerships with local CSOs and WROs were central to advancing GEWE but limited by

structural and procedural constraints.

• GAP III is relevant in fragile contexts, but delivery mechanisms need further adaptation to

fragility.

• The EU’s monitoring, evaluation, and learning (MEL) systems remain inadequate to

demonstrate transformative change and support adaptive management.

• The EU support has generated valuable lessons and best practices, but lacks mechanisms to

systematise, share, and scale them.

Evaluation of the EU's support to partner countries in the education sector (2014-2024)

The evaluation provided an independent assessment of the European Union's support to education in

external action with a focus on four priority areas: (1) safeguarding education financing; (2) equity and

inclusion, notably gender and digital; (3) teachers and learning; and (4) skills for life and work,

particularly in relation to the Global Gateway strategy. While the evaluation did not cover Erasmus+

and TVET programmes in depth, it examined education-related interventions implemented in INTPA

partner countries, i.e. in Sub-Saharan Africa, Asia and the Pacific, Latin America and the Caribbean. The

evaluation also provided EU policymakers with recommendations for shaping future EU education

support, taking into account major current and emerging trends in education.

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The main conclusions were the following:

• The EU has established itself as a key player on the global education stage.

• The EU has functioned more as a stabilising force than as an influencer, due notably to lack of

granular policy orientations and specialist staff.

• From a thematic perspective, the EU’s primary strengths lie in supporting teachers’

development and governance to address quality challenges across all education levels and in

advancing inclusion and equity, primarily in basic education.

• The EU is a strong player in education in emergency and fragile contexts, though

organisational challenges hamper the nexus.

• The EU’s comprehensive skills agenda, covering all types of skills (foundational, advanced,

specialised, technical and soft skills) throughout the education continuum, has been relevant

to partner countries’ needs and the EU’s own strategic priorities. However, there are risks in

shifting funding further away from basic education.

• One major EU strength is its approach of strengthening national education systems, aligned

with national policies, favouring sustainability.

• The EU’s comparative advantage is less well-defined in early childhood education, school

feeding, inclusion of learners with disability, and adult education.

• The EU and the international aid community have shown great interest in specific types of

innovative financing involving private finance, but expectations are overly ambitious. Still, the

EU is well placed to play a leading role on education finance based on the expertise and

reputation it has built in this domain.

• There is a lack of clarity about the role education and skills are meant to play within the EU’s

renewed strategy for external action, and specifically the Global Gateway strategy.

• The EU’s international prominence as a champion of green and digital transition is yet to

materialise in its support to education in partner countries, and the Commission Directorate-

General for International Partnership’s guidance on digital and green education, while

relevant, lacks broad ownership within the EU.

• The absence of a well-structured EU monitoring, evaluation and learning system makes it

challenging for the EU to demonstrate the quality of its work and the importance of support

to education under the Global Gateway strategy, despite its enduring relevance.

5.2. Aid delivery modalities

5.2.1. Budget Support

Budget support is a policy-driven, results-based instrument that continues to efficiently support

partner countries from building state structures and providing basic services to driving policy

transformation and dialogue along a shared partnership agenda. It supports partners in

implementation of macroeconomic, public finance and structural reforms that are prerequisites for

strong statehood, economic stability and sustainable development.

Across all geographies, budget support programmes increasingly target business-friendly and

investment conducive environment through focus on measures to ensure strong institutions, effective

regulation, transparent public procurement, sound public investment management, compliance with

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ESG standards or reforms of State-Owned Enterprises, helping prepare the ground for the Global

Gateway investment projects.

Budget support programmes help partners tackle challenges posed by climate change and combine

their growth agenda and the development of sustainable value chains with environment and

biodiversity protection.

The EU budget support and technical assistance for implementing the

Climate Change Act support Fiji to scale up mitigation and adaptation,

aiming increasing renewable energy and cutting greenhouse gas emissions.

This is achieved by adopting key regulatory frameworks, essential for the

Act’s practical implementation, including the Public Sector Investment

Programme Guidelines, which incorporate screening tools to assess

climate and disaster risks. In parallel, under the EU’s Global Gateway,

feasibility studies for the Qaliwana and Vatutokotoko hydropower plants

have been completed, and discussions on financing are well advanced.

In order to benefit of EU funding through budget support, partner countries need to satisfy four

encompassing eligibility criteria: a relevant and credible public policy; stability-oriented macro-

economic policies; progress in public finance management and revenue mobilisation; and budget

transparency and oversight. Concrete reform results and programme achievements are incentivised

through performance indicators, against which payments are disbursed proportionally. By working

through country systems and strengthening them, EU budget support fosters partners’ ownership and

capacity to sustain results. As additional facilitation, budget support comes with a complementary

component for dedicated technical assistance and capacity development. It fosters domestic

accountability, supporting civil society organisations as allies for transparency.

In Rwanda, the EU budget support programme aims at boosting climate

resilience, agricultural productivity and human capital. In rural hillsides, it

helped smallholder farmers combat soil erosion through sustainable agro-

ecological practices such as terracing and agroforestry, adding 4 300

hectares of radical terraces nationwide. The construction of the Kigali

wholesale market − Global Gateway project – will help Rwanda achieve

its goal of becoming a distribution hub for fresh and processed food in

Eastern and Central Africa. In the area of early childhood education, the

budget support programme increased education spending, raised net

enrolment among 3–6-year-olds from 42.8% to 50%, and sustained universal school feeding.

EU budget support is an asset providing a platform for policy dialogue to promote regulatory reforms

in priority sectors and is implemented in conjunction with operations financed by the EU Member

States, in a ‘Team Europe’ approach.

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The EU is advancing the Global Gateway objectives in the Kyrgyz Republic

by supporting water sector reforms through EU budget support, aligned

with the National Water Strategy 2040. This strengthens the integrated

water resources management by establishing basin-based water

authorities, improving hydrometeorological monitoring and developing a

modern regulatory framework under the new Water Code. It

complements EFSD+ investments in water, sanitation, health (WASH) and

irrigation and, together with the Team Europe Initiative on Water, Energy

and Climate Change, helps enhance climate resilience, while reducing

regional inequalities. By reinforcing sustainable infrastructure, governance and public services,

the combined support promotes long-term water security, green, inclusive growth and regional

stability in Central Asia.

Budget support is a key instrument of the EU toolbox to promote adequate enabling conditions for

the scale-up of Global Gateway. By supporting macroeconomic stability, strategic sector policies and

stronger institutions, it helps create the enabling environment required for sustainable, quality

investment in strategic sectors. Sound macroeconomic policies contribute to economic resilience,

more predictability for private sector long-term investment decisions and encourage

entrepreneurship. Solid public finance management (PFM) is critical to mobilise domestic resources,

use them efficiently and effectively to deliver public services and promote investment. Combined with

efficient debt management, this allows gaining more fiscal latitude (e.g. for investment) and

strengthening market confidence to contain the borrowing costs and mitigate debt vulnerabilities.

Such a consequential approach promotes growth and, supports economic transformation

In the Dominican Republic, the budget support programme, supports the

country in its transition to a formal, circular and green economy. In 2024,

formal employment rose by 5.9%, securing over 900 000 formal jobs and

registering more than 400 000 MSMEs, alongside a 3% increase in foreign

investment. A key milestone was the mid-2025 adoption of a new public

procurement law, introducing green public procurement, mandatory

digitalisation, and stronger participation of MSMEs, including those

women-owned.

Integrating the revenue and spending sides of public finance management is a key factor in improving

the investment climate in a country. Hence, the EU budget support aims to contribute to that objective

through reforms on public procurement, public investment management, taxation (equity,

transparency and predictability), customs administrations (critical for trade facilitation and the fight

against illicit trade) and the fight again corruption.

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In Cambodia, budget support programmes foster a transparent

regulatory environment by helping the country to digitise public finance

supports the country also in modernisation of technical education

promoting studies in es science, technology, engineering, and math

(STEM) scholarships. In parallel, the 2025 Fisheries Law, introduced the

requirement of compliance with the EU standards for listing and export

fishery products, which combined with modern traceability and safety

systems, facilitate access to premium international markets.

Achieving tangible results requires a coordinated and mutually reinforcing mix of instruments. The

EU’s Global Gateway provides the large-scale, high-quality infrastructure investment needed to close

critical gaps in connectivity, energy, digital access, and health, laying the foundations for long-term

growth. But infrastructure alone is not enough: budget support and reform partnerships help create

the policy and institutional conditions needed to sustain these investments by strengthening public

financial management, governance, and sector frameworks. Technical assistance and capacity

building − through twinning, training, and knowledge exchange − further equip people and institutions

to lead reform from within, reduce aid dependency, and build resilience. Together, this triad creates

a virtuous cycle: investment is more effective in a strong policy environment, reforms gain credibility

when backed by visible development, and capacity building helps ensure lasting impact beyond the

project cycle.

In Vietnam, the EU budget support programme helped the country’s

transition towards sustainable energy, by supporting the introduction of

bankable renewable energy procurement frameworks, such as

competitive auctions and standardised power purchase agreements;

enhancing power market regulation and tariff-setting; and sustained

system planning for integrating variable renewable energy into the grid.

These reforms provide the enabling framework for Global Gateway

investments, such as the Tri An hydropower extension and Bac Ai pumped storage project, as well

as future investments supported by the Energy Investment Facility.

Furthermore, in the Middle East and North Africa, the EU provided budget support to Jordan, Morocco

and Tunisia. Operations supported policy objectives remain relevant for the implementation of the

New Pact for the Mediterranean with Southern Mediterranean partners, launched in November 2025.

The EU budget support contributed to Jordan’s economic modernisation and energy transition, including economic greening and technical and vocational education and training. Renewable sources now account for 26% of the country's energy supply, and 77 professional standards are enforced in the energy sector and across industries such as chemicals and plastics, textiles, ICT, tourism, pharmaceutics, and food processing.

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In the same region, budget support provided a platform for dialogue and reform incentives in a wide

range of sectors, and policy areas including skills, employment, financial inclusion and social

protection; economic governance and public administration reform; competitiveness, trade and

investment climate; green and digital transition. Budget support also assisted with the inclusion of

Syrian refugees in Jordan, to allow Syrian kids to attend schools and benefit from social services.

EU budget support has long contributed to financial inclusion in Morocco. Through targeted measures for women and rural areas, the rate of Moroccan adults holding a bank account increased to 58% at the end of 2024 from 54% at the end of 2023. Mobile payments are also on the rise and microfinance is progressing, in rural areas particularly. These now account for 40% of the overall microfinance portfolio in the country, and women near 50% of total beneficiaries.

During 2025, the EU expanded its Reform and Growth Plan facilities in the Enlargement and Eastern

Neighbourhood region, adding the Republic of Moldova alongside Ukraine and the Western Balkans.

The Republic of Moldova benefited from highly concessional loans with payments tied to applicable

general conditions and achieved reforms. Under the Facility, the EU disburses loans directly to the

national treasury, with a dedicated portion channelled into investment projects.

In parallel, the EU provided budget support grants to Armenia, Albania, Kosovo, Bosnia and

Herzegovina, Montenegro, and Serbia, targeting priority areas including public administration, public

finance management, education, energy, refugees, and justice and border management. In Armenia,

a new multi-sector budget support programme was approved, aligned with the Roadmap for

Implementing the Resilience and Growth Plan (2024-2027).

In Armenia, EU budget support focuses on secondary education and improving access to quality schooling in rural areas. In 2025, construction or renovation of 13 schools began; 95% of schools introduced professional orientation clubs; half of schools in the marzes of Ararat, Kotayk and Gegharkunik were equipped with at least three modern STEM labs; and over 90% of STEM teachers in grades 6, 8 and 11 received

training.

Budget support continues to prove very relevant to support countries in situations of fragility or facing

crisis and exogenous shocks. Deployed as a part of a ‘Team Europe’ approach and in tandem with the

IMF and World Bank programmes, it helps them secure macroeconomic stability, improve public

finances and incentivise critical reforms for sound economic governance and state/economic

resilience.

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Since 2019, the EU has been providing budget support to Somalia with a strong focus on education. In a post-conflict context, where public education had largely collapsed, the EU helps the government rebuild a national education system. Through budget support, policy dialogue and complementary programmes, the education budget increased from 3% to 7%, which brought to the first 5 000 teachers being recruited onto the national payroll under the National Teacher Initiative, and enrolment rates raised, including for girls.

Budget support provided in the form of State and Resilience Building contracts (SRBC) help set the

basis for strong governance and country systems and, ultimately, bring vulnerable countries closer to

opportunities offered by the Global Gateway, as it was the case in Mauritania, Papua New Guinea and

Somalia.

In 2025, the EU budget support contributed with EUR 915 million in payments to partner countries’

budgets. It accounted for 8.46% of payments under NDICI−Global Europe, IPA III, DOAG and

predecessor instruments with still on-going operations. The Western Balkans and Eastern

Neighbourhood received EUR 152 million, the Southern Neighbourhood - EUR 330 million and sub-

Saharan Africa, Americas and the Caribbean, Asia and Pacific and Overseas Countries and Territories

(OCTs) altogether benefitted from EUR 433 million.

The amount of new budget support programmes adopted in 2025 amounted to EUR 915 million, of

which EUR 505 million supported countries in the Middle East and North Africa, EUR 200 million the

Enlargement and Eastern Neighbourhood and EUR 210 million other parts of the world, including

OCTs. Sector Reform Performance Contracts prevailed with 73% of new commitments, while State

and Resilience Building Contracts accounted for 20% of new commitments. Only 1 SDG Contract was

adopted in 2025 (Cabo Verde) accounting for 7% of all new commitments.

These new operations accompany Global Gateway investments by reinforcing the enabling

environment (e.g. Kyrgyzstan and Papua New Guinea for water sector reforms, Solomon Islands and

Cabo Verde for energy sector reforms, creating the enabling conditions for Global Gateway

investments in renewable energy).

The design and implementation of budget support continue to build on a sound internal risk

management framework, which informs Commission’s strategic priorities and decision, policy

dialogue and risk mitigation in partner countries. In 2025, this framework was extended to all

developing/emerging countries engaged in a bilateral cooperation and where Global Gateway projects

are deployed or have imminent prospects. The conclusions stemming from the risk assessment apply

to all types of implementing modalities. This framework thereby supports the scale up of Global

Gateway by enhancing the focuson political, macroeconomic, fiscal and structural challenges which,

if left unaddressed, may hinder the Global Gateway projects.

5.2.2. Blending

In order to achieve greater scale of investments and increase the impact of official development

assistance, public and private funds must be leveraged as efficiently as possible. The EU has expanded

its financial instruments and policy tools for investment outside the EU to deliver on its ambitious

commitments to sustainable development, enlargement and neighbourhood policies.

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Blending operations are a key modality of EU external action in 2025. The EU combines a limited

contribution, in a non-reimbursable and/or reimbursable form, with non-grant resources such as

loans, equity and guarantees from partner financial institutions to achieve a leveraged development

impact. The strategic use of a limited grant element can support projects with low financial return but

high economic and societal return, making them economically viable and enhancing implementation

quality. Blending may also provide an element of concessionality necessary for loans taken by some

indebted partner states.

Blending draws on a broad ecosystem of European and international partners. The Commission works

in a ‘Team Europe’ approach with EU Member States’ development banks and agencies, the EIB, the

EBRD and other multilateral development banks to mobilise resources coherently and at scale.

Under NDICI–Global Europe and under the European Fund for Sustainable Development Plus (EFSD+),

blending currently operates through four regional investment facilities: the Africa Investment Platform

(AIP), the Asia-Pacific Investment Facility (APIF), the Latin America and Caribbean Investment Facility

(LACIF), and the Neighbourhood Investment Platform (NIP)(61). Pre-existing blending facilities are

phasing out their remaining envelopes. All the blending facilities operate in close complementarity

with EFSD+ budgetary guarantees.

Altogether, in 2025, the EFSD+ Operational Boards issued a positive opinion for EUR 1.1 billion EU

contribution (including fees) through 58 blending operations, which in turn are expected to leverage

around EUR 17.8 billion in additional public and private financing.

Those blending operations support the Global Gateway and other Commission priorities such as the

Reform and Growth Plans and the Connectivity Agenda for enlargement countries and the Eastern

Neighbourhood and the Pact for the Mediterranean for Northern Africa and the Middle East.

Table 1. NDICI - EU Blending contributions approved in 2025 by facility

Blending facilities 2025 (million EUR – excluding fees)

NIP 331.4

AIP 602.7

APIF 83.2

LACIF 30.3

Total 1 047.6

Table 2. NDICI - EU Blending contributions approved in 2025 by sector

Sector 2025 (million EUR – excluding fees)

Agriculture 56.6

Digital 85.1

Energy 474.61

Environment 53.74

Private sector 79.05

Social 27.6

Transport 134.6

Urban Development 19

Water / sanitation 72.1

Mixed 45.2

61 In addition, the Türkiye Investment Platform (TIP) serves as a platform steering the use of EFSD+ guarantees with active involvement of Turkish authorities but does so far not include any blending operations.

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Sector 2025 (million EUR – excluding fees)

Total 1 047.6

In addition to the blending platforms under the NDICI−Global Europe instrument, there are also

dedicated platforms for the Western Balkans and Ukraine:

The Western Balkans are covered under the Western Balkans Investment Framework (WBIF), which is

a financial platform that coordinates investments for socio-economic development in the region and

supports the Western Balkan partners in their EU accession process. In 2025, grants for above EUR

384 million were approved to support technical assistance and investment projects in the fields of

clean energy, environment and climate, sustainable transport, human capital development and digital

future(62).

Ukraine is covered under the Ukraine Investment Framework (UIF) launched in 2024 under Pillar II of

the Ukraine Facility. The objective of the UIF is to mobilise investments for the reconstruction,

modernisation and long-term growth of Ukraine, supporting the objectives and the implementation

of the Ukraine Plan consistent with EU policy priorities, while ensuring active participation of the

Ukrainian Government. The UIF had an overall EUR 1.7 billion blending envelope available (including

a EUR 128 million contribution by Norway and EUR 108 million from the windfall profits) to

complement the Ukraine Guarantee where clear instances of market failure affect the economics of

the project and necessitate such concessional EU contributions. By end-2025, an EU contribution of

EUR 635 million (including fees) was mobilised through 16 signed operations.

5.2.3. EFSD+, EU budget guarantees

The European Fund for Sustainable Development Plus (EFSD+) is the financial arm of the NDICI−Global

Europe Regulation and a central instrument for implementing the Global Gateway strategy. It also

supports other strategic priorities of the Commission such as the Reform Agendas and Growth Plans

and the Connectivity Agenda with partner countries in the Eastern Neighbourhood and the

Enlargement Region as well as the Pact for the Mediterranean in view of partner countries in Northern

Africa and the Middle East. It provides budgetary guarantees backed by the External Action Guarantee

(EAG), enabling partner financial institutions to take on higher levels of risk and to mobilise substantial

additional public and private investment in support of sustainable development and the Sustainable

Development Goals.

The EAG was established by NDICI−Global Europe to bring together grants, blending and guarantees

in a single framework. It provides up to EUR 53.4 billion in guarantee capacity, with an indicative EUR

26.7 billion implemented through dedicated European Investment Bank (EIB) investment windows. In

this regard, the Commission has signed two investment windows with the EIB – Investment Window

1 for sovereign and non-commercial sub-sovereign operations and Investment Window 2 to support

investments undertaken by commercial sub-sovereign counterparts – for a total amount of EUR

26.558 billion. Investment window 4 was also signed for EFSD+ guarantees enabling the EIB to provide

support for the private sector, specifically in the countries of Sub-Saharan Africa, Caribbean and the

Pacific (ACP). Operations under investment window 4 are financed by the ACP Investment Facility

reflows but they are mentioned in this section since they are transferred to the EU Budget and also

provide external action guarantees, for a total amount of EUR 3.5 billion. EUR 13 billion guarantee

capacity is deployed via ‘open architecture’ windows for commercial sub-sovereign and private-sector

operations with other pillar-assessed international and national development finance institutions

62 The funds came from both IPA and the Reform an Growth Facility.

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across all NDICI–Global Europe and IPA III regions. This architecture allows the EU to promote

large-scale, impact-oriented investments in line with Global Gateway priorities such as climate,

energy, digital, health, connectivity and sustainable value chains.

Under the EFSD+ EIB-dedicated Investment Windows:

• in INTPA regions, 30 operations were signed in 2025 for a total loan amount of EUR 2.1 billion.

Support provided by our guarantees is complemented by blending projects which is expected

to generate around EUR 13 billion in investment;

• in ENEST regions, 11 operations were signed in 2025 for a total loan amount slightly above

EUR 1 billion. Overall, this leads to a total loan amount of approximately EUR 4 billion under

EFSD+ for Windows 1 and 2 so far which is expected to mobilise total investments of around

15 billion. Support provided by our guarantees is complemented by blending projects which

is expected to generate around EUR 514 million in investment;

• in MENA regions, 5 new operations and 3 tranches of existing operations were signed in 2025

for a total loan amount of slightly above EUR 1.3 billion. Overall, this leads a total loan amount

of just above EUR 4.2 billion under EFSD+ for Windows 1 and 2 so far which is expected to

mobilise total investments of around EUR 15 billion. Support provided by our guarantees is

complemented by blending which is expected to generate around EUR 1.5 billion in

investment.

By the end of 2025, 11 EFSD (the first generation of budgetary guarantees) guarantee agreements

were managed with a total guarantee capacity of EUR 1.1 billion and 40 EFSD+ Open Architecture

guarantee agreements with a total guarantee capacity of EUR 6.6 billion. The investment period for

the original EFSD ended in 2024, so no new operations can be submitted under that framework, while

EFSD+ guarantee contracting continues until 2027. In 2025 alone, 20 new EFSD+ Open Architecture

guarantee agreements were signed with development finance institutions, for a total guarantee

amount exceeding EUR 3 billion. These guarantees cover priority sectors such as energy, climate,

digital connectivity, agriculture, micro, small and medium-sized enterprises, and currency hedging.

Deployment accelerated, with 63 operations signed in 2025 under EFSD+ Open Architecture

guarantees for a total amount of around EUR 1.4 billion.

Governance and risk management of EFSD+ were further strengthened in 2025. Roles and

responsibilities for risk monitoring and response across the EFSD+ strategic and operational boards

were formalised, building on a risk compendium developed under the steering committee on

contingent liabilities. Methodologies and targets were clarified for leverage, additionality,

climate-related indicators, jobs and beneficiaries, and for the share of investments in least developed

and fragile countries. Internal guidance was adopted on what constitutes a default triggering a

guarantee call, on recovery procedures and allocation of recovery costs, and on the use of

Covid-19-related eligibility and fee-discount clauses. Standard data-protection clauses were also

incorporated across guarantee agreements. These reforms respond to Internal Audit Service

recommendations and help ensure that the EFSD+ portfolio remains within the EU’s risk tolerance

while delivering on policy objectives.

EFSD+ budgetary guarantees thus form a core pillar of the EU’s external investment offer. By de-risking

investment in partner countries, they help to crowd in financing at scale, support sustainable and

inclusive growth, and underpin Global Gateway flagships in strategic sectors. Together with blended

finance, technical assistance and policy dialogue, EFSD+ enables the EU to deliver a coherent,

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high-impact response to investment needs in partner countries while safeguarding the Union budget

through prudent provisioning and robust risk-management arrangements.

5.2.4. Technical assistance

Technical assistance (TA) refers to the personnel involved in the implementation and management of

technical cooperation services. Technical cooperation (TC) is associated with actions aimed at

strengthening individual and organisational capacity by providing expertise (short- and long-term TA

personnel, institutional staff exchanges (twinning) arrangements and mobilising diaspora resources,

etc.), training and related learning opportunities (peer exchanges, tertiary education, etc.) and

equipment.

The Framework Contract ‘Services for External Action 2023’ (SEA 2023) was established for four years

and started implementation in February 2024. Its 17 lots span across 14 thematic areas of EU

international partnerships, as well as three horizontal types of services in monitoring and evaluation.

At the end of 2025, after almost two years of implementation, 490 specific contracts (of which 70% to

support Commission Directorate-General for International Partnerships’ services and related EU

Delegations) had been awarded under SEA 2023, for a total of over EUR 188 million. Types of services

include studies and evaluations, monitoring activities, and technical assistance assignments including

facilities to support the work of EU Delegations.

Under NDICI–Global Europe, the EU continued to expand the use of public-sector expertise to support

institutional reforms and implementation of the 2030 Agenda. In 2025, technical assistance remained

a core modality of EU external action, used both to support partner-country reforms and to enhance

the capacity of EU services and delegations to deliver on Global Gateway and other priorities. It was

deployed alongside budget support, blending and guarantees as part of a 360-degree approach that

couples finance with policy dialogue and capacity building.

5.2.5. Twinning and TAIEX

In 2025, Twinning (medium- to long-term assistance) and the Technical Assistance and Information

Exchange instrument (TAIEX) continued to serve as key institution-building tools supporting the

implementation of EU priorities in partner countries and beyond. They provided short-term and

medium-term peer-to-peer support from national administrations of EU Member States to public

institutions in enlargement and neighbourhood partners, in particular to accelerate alignment with

the EU acquis and to strengthen administrative and regulatory capacities.

TAIEX underwent a strategic prioritisation exercise in 2025 to focus more explicitly on acquis

alignment and the acceleration of accession processes. As part of this reorientation, TAIEX Roadmaps

were developed for Montenegro, Albania, the Republic of Moldova, North Macedonia, Serbia and

Kosovo. These roadmaps help structure assistance around the most urgent accession-related needs,

support the implementation of Reform Agendas under performance-based facilities, and contribute

to gradual integration into the EU’s policies and single market, for example in areas such as payment

systems, digital markets and connectivity. In this framework, 576 TAIEX interventions were organised

for partners(63) in 2025, including workshops, screening meetings, study visits, expert missions and

‘work-from-home’ legislative reviews. This targeted support complemented broader efforts to

frontload reforms on the rule of law, economic governance and public administration.

63 covered by the Directorate General for Enlargement and Eastern Neighbourhood (ENEST).

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The geographical and thematic scope of TAIEX continued to broaden, building on the expansion

observed in the previous year, when 901 events were facilitated globally. In the European

Neighbourhood, TAIEX remained central to institution-building and to the implementation of the

regional Economic and Investment Plans. In the Eastern Neighbourhood, it provided intensive support

to Ukraine and the Republic of Moldova and addressed specific needs related to public administration

reform and the wartime context, for example through a workshop on non-financial motivation and

retention of civil servants under martial law. In the Southern Neighbourhood, TAIEX events supported

reforms aligned with the green and digital transitions, including expert missions on greenhouse-gas

emission inventories and carbon footprint reporting for key infrastructure operators, and regional

workshops on broadband rollout and geoportal development in the Eastern Partnership. TAIEX was

also used to strengthen capacities of audit authorities in candidate countries, including through

dedicated workshops that contributed to the closure of earlier pre-accession programmes.

Twinning continued to complement TAIEX as a medium-term instrument based on the secondment of

Member State experts to partner administrations. It remained an important tool for supporting

legislative approximation, public administration reform and the strengthening of democratic

institutions in enlargement and neighbourhood partners. In 2024, 82 Twinning projects were ongoing

worldwide, involving 25 Member States either as lead or junior partners, with projects supporting,

inter alia, Ukraine, the Republic of Moldova and Algeria. In 2025, Twinning, together with TAIEX,

strategically supported the implementation of the Commission’s priorities in partner countries by

promoting durable institutional links, transferring know-how and good administrative practice, and

underpinning reforms in key sectors such as justice, internal security, public finance management and

the green and digital transitions.

5.3. Non-programmable funds – rapid response

5.3.1. Crisis response

Non-programmable crisis response funds under the rapid-response pillar of NDICI−Global Europe are

the main instrument within the EU foreign policy toolbox to address evolving conflicts and political

shocks and to quickly deal with emerging political priorities. Thanks to the crisis response funding, in

2025 the EU responded swiftly to major crises worldwide, including in Ukraine, the Republic of

Moldova, Armenia, Sudan, Syria, Israel/Palestine, Lebanon, Myanmar, Democratic Republic of Congo,

etc.

These interventions enabled the EU to swiftly contribute to stability in situations of crisis or emerging

crisis, by providing flexible support designed to help preserve, establish or re-establish conditions of

peace and respect for fundamental human rights, in line with EU policy priorities and values. Crisis

response bridges the critical gap between the outbreak of a crisis, humanitarian assistance,

longer-term cooperation and the Common Foreign and Security Policy, including civilian CSDP

missions and the European Peace Facility.

By the end of 2025, there were 257 ongoing crisis response interventions, with 78 new crisis response

interventions adopted during the year. Wherever possible crisis response operations continued to be

largely implemented through civil society organisations on the ground. However, in certain contexts,

the EU partnered with international organisations, notably the United Nations, which often act as

single-entry partners in highly volatile environments.

In Ukraine, crisis response funds mobilised as of April 2022 have been critical to establishing the

Special Tribunal and the International Claims Commission, key for transitional justice and

accountability. In 2025, the EU provided critical crisis-response support to counter Russia’s war of

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aggression against Ukraine, bolstering demining, energy security and accountability, and increasing

stabilisation efforts in the Eastern Neighbourhood, notably in the Republic of Moldova and Armenia.

Meanwhile, in the Middle East, new actions were ramped up to tackle escalating instability in Syria,

Gaza and the West Bank, Lebanon and Iraq, reinforcing human security, social cohesion and key

multilateral efforts, including on mediation. Across Sub-Saharan Africa, crisis response interventions

targeted acute and long-term crises in Sudan and South Sudan, the Democratic Republic of Congo, the

Central African Republic, Nigeria and the Sahel and the Horn of Africa regions, focusing on

stabilisation, mediation, local peacebuilding and protection of civilians. Beyond these, crisis response

actions continued in Myanmar, Haiti, and other fragile or post-crisis zones, underscoring the global

scope of the instrument.

Crisis-response actions tackled both the drivers and the consequences of instability, sustaining peace,

brokering ceasefire agreements, supporting democratic transition, and tackling global threats, from

the South Caucasus to Sudan, Syria or the Central African Republic.

Interventions have helped fill the gap left by the US in the area of disinformation and media integrity,

supporting independent media, countering Russia’s propaganda war and strengthening partner

countries’ strategic communications and cyber resilience capacities to withstand interference in

democratic processes.

Mine action and rubble removal remained a priority in Ukraine, Syria, Gaza, Armenia and Lebanon. In

Ukraine alone, land the size of the Netherlands has been made available for agricultural cultivation.

Crisis response has been instrumental to support mediation, conflict prevention and peacebuilding

efforts, in close coordination with multilateral partners, from Sudan to Yemen, Syria and beyond.

5.3.2. Resilience

Non-programmable funds under the rapid-response pillar of NDICI−Global Europe continued in 2025

to play a key role in strengthening the resilience of partner countries facing crises, fragility and growing

global shocks. The rapid-response pillar is non-programmable by design, has a global scope and offers

a flexible toolbox that allows the EU to act swiftly and in a complementary way to geographic and

thematic programmes. Within this pillar, the resilience window is dedicated to reinforcing the capacity

of individuals, communities and states to withstand, adapt to and recover from shocks, including

conflicts, economic crises, climate and environmental stress and forced displacement.

The crisis-response window aims ‘to swiftly contribute to stability in a situation of crisis or emerging

crisis’ and to help (re)create conditions for peace and respect for human rights. Instead, the resilience

window complements this by focusing on longer-term measures ‘to strengthen the resilience of

individuals, communities and states to prepare for such shocks and develop adapted responses to

their impact’. It does so by improving livelihoods and access to basic services for vulnerable

communities, supporting adaptive social protection systems, building climate and environmental

resilience, and helping to create more secure and cohesive local communities.

Rapid-response resilience actions are implemented through a range of instruments, including grants,

technical assistance, support to multilateral partners and a global expert support facility. They may

accompany or prepare political and peace processes, support the UN peace architecture, or underpin

specialised facilities such as those on anti-money-laundering and countering the financing of

terrorism, which contribute to more resilient institutions and societies.

Under the current multiannual financial framework, a dedicated resilience component of the

rapid-response pillar has an indicative allocation of EUR 1.043 billion for 2021–2027. In 2024, the

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resilience budget amounted to EUR 149 million and was translated into a portfolio of interventions

targeting conflict-affected and climate-vulnerable regions.

Resilience actions supported conflict-affected communities in eastern and central Africa; programmes

in West Africa to strengthen community-level security, basic services and social cohesion; adaptive

social protection schemes in Pakistan; security and resilience initiatives in Ecuador and eastern

Democratic Republic of the Congo; and climate-resilience programmes in the Caribbean and Pacific

regions. These actions often combined support for livelihoods, local governance, climate adaptation,

disaster-risk reduction and community security.

5.3.3. Foreign policy needs

In 2025, non-programmable funds for foreign policy needs under NDICI–Global Europe continued to

provide a flexible and demand-driven tool to respond rapidly to urgent and strategic external policy

priorities. These interventions complemented geographic and thematic programmes and the wider

EU foreign policy toolbox by supporting the external dimension of internal policies, strengthening

partnerships with strategically important partners and tackling global challenges with a direct impact

on EU interests. The instrument was used to advance policy, economic and security objectives,

including hybrid and cyber security, civil aviation security, economic security, the fight against

disinformation and foreign information manipulation and interference (FIMI), as well as to foster

public and cultural diplomacy and promote the EU’s visibility worldwide.

In 2025, 16 new foreign policy needs interventions were launched. They addressed global challenges

such as economic security, public diplomacy and the fight against disinformation and FIMI, and

supported the EU’s efforts to build alliances, deepen regulatory and policy dialogues and project

influence in an increasingly contested geopolitical environment.

In Asia and the Indo-Pacific, Foreign Policy Needs interventions helped address challenges related to

the implementation of new EU regulatory frameworks, including support to partners in the

Association of Southeast Asian Nations (ASEAN) facing difficulties in implementing the revised EU

Waste Shipment Regulation. Other actions enhanced disaster management and civil protection

capacities in Taiwan and advanced the roadmap for the EU–Australia strategic partnership on critical

raw materials, contributing to the EU’s economic security and diversification of supply chains. Foreign

policy needs funds in 2025 also supported priority initiatives linked to Russia’s war of aggression

against Ukraine and its wider implications. One flagship example was the financing of the advanced

team of the Special Tribunal for the Crime of Aggression against Ukraine, contributing to the

development of new international norms and mechanisms to ensure accountability in line with the

Charter of the United Nations.

A dedicated Rapid Response Mechanism to support EU foreign policy needs was launched in 2025 as

a horizontal, demand-driven facility. It provides swift support for initiatives addressing urgent or

imperative EU foreign policy priorities. During 2025, implementation started for 13 initiatives under

this mechanism, with a total value of EUR 3.5 million. These small, agile actions covered a wide range

of topics and geographies and were designed to respond quickly to high-priority political requests,

complementing more substantial foreign policy needs projects and geographic programmes. Examples

include:

• Support for direct business outcomes during the EU-Ukraine Defence Industry Forum, leading

to the signature of Memoranda of understanding and letters of intent,

• Strategic intelligence feeding EU action with the recommendations provided to counter FIMI

in LAC and strengthen EU engagement,

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• Support to ministerial and regional dialogues involving EU and partner countries (Ukraine,

Indo-Pacific),

• Concrete policy uptake at high level in Guatemala, the recommendations of the judicial and

electoral monitoring mission being formally presented to the President and various local

stakeholders.

5.4. Improving ways of working

5.4.1. Simplification of procedures

Legislative framework

The year 2025 was marked by the adoption, by the Commission, of its proposals for the future Basic

Acts which will govern the Commission’s competences under the multiannual financial framework

(MFF) 2028-2034, in the field of external actions: the proposal for the Regulation on Global Europe(64),

the proposal for the Regulation on the Instrument for Nuclear Safety Cooperation and

Decommissioning(65) and the proposal for the Amendment to the Decision on the Association of the

OCTs including Greenland(66).

With these three proposals, the simplification of the legislative architecture of the external actions

heading, which started years ago, aims to obtain a next level: the proposed single Global Europe

Regulation would incorporate and build on the current MFF 2021-2027 Regulation (EU) 2021/947

establishing Neighbourhood, Development and International Cooperation – Global Europe, Regulation

(EU) 2021/1529 establishing the Instrument for Pre-Accession assistance, Regulation (EU) 2024/792

establishing the Ukraine Facility, Regulation (EU) 2024/1449 establishing the Reform and Growth

Facility for the Western Balkans, and Regulation (EU) 2025/535 establishing the Reform and Growth

Facility for the Republic of Moldova. Furthermore, under the proposal, humanitarian aid actions would

equally be funded under the Global Europe Regulation and implemented in line with the Humanitarian

Aid Regulation (EC) 1257/96.

At the same time, the provisions covering monitoring, reporting, evaluation and communication

would disappear from the external action Basic Acts and instead be covered by the Performance

Regulation(67), which would be horizontal for the entire MFF. While the INSC-D-proposal and DOAG-

proposal cannot be part of the integration into a single Global Europe Regulation, due to their distinct

Treaty-basis, they both contain cross-references to the Global Europe Regulation, thereby

harmonising the implementation provisions.

Planning of actions

Another key simplification measure was that for the Enlargement and Eastern Neighbourhood, the

Commission shift to a more systematic multi-annual planning approach for 2025-2027 instead of usual

annual action plans adopted each year. This approach reduced the number of Commission financing

decisions for Enlargement and Eastern Neighbourhood partners by consolidating country and regional

support into broader action documents. Action plans were streamlined to focus on high-level strategic

priorities, with detailed operational planning captured in internal action fiches.

64 GE-COM(2025) 551 65 INSC-D - COM(2025) 598 66 DOAG - COM(2025) 599 67 COM(2025)545

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Direct and indirect management

In 2025, the EU pursued a targeted simplification agenda for external action procedures in line with

the political objective of making implementation simpler and faster, while maintaining high standards

of legality, regularity and sound financial management. The approach focused on adjusting delivery

modalities, streamlining grant and procurement processes and rationalising control and reporting

requirements, without weakening the internal control framework.

A central development was the promotion of financing not linked to costs (‘FNLC’, fully integrated in

the 2025 version of the Practical Guide to Contract Procedures for EU External Actions (PRAG)) and

the introduction, following a Commission decision in 2025 authorising the use of single lump-sum

grants in external action, of grants reimbursed in the form of single lump sums which will be fully

integrated to the next PRAG. These modalities simplify financial management and reporting by

focusing on the achievement of agreed results and the performance of activities instead of detailed

cost reporting, thereby reducing the administrative burden for implementing partners and speeding

up processing.

For its geographies, DG ENEST also developed internal guidelines for the use of FNLC at intervention

level (i.e. for a programme or a project). The main purpose of these guidelines is to help staff who

programme, design, monitor and implement interventions to adopt the most suitable form of Union

contribution, including FNLC.

Procedures for grants and procurement under the 2025 PRAG were reviewed through two ‘reality

checks’ with stakeholder organisations representing civil society and service providers. These

exchanges examined how the new grant rules and procurement provisions work in practice and

identified operational bottlenecks, with a view to aligning contractual provisions more closely with

implementation realities and improving accessibility, especially for smaller organisations.

Delivery modalities were rationalised to reduce complexity. For the countries under the remit of the

Commission Directorate-General for International Partnerships, programme estimates were phased

out, and the use of indirect management with partner countries limited to procurement contracts,

discontinuing the possibility for partner authorities to act as granting authorities for EU-funded grants.

This shift simplifies roles and responsibilities and avoids, given the upcoming adoption of the Model

grant agreement managed in eGrants, having two concurrent contract models and sets of

implementing rules. The evaluation process for calls for proposals was also simplified by merging two

evaluation steps into a single stage, shortening time-to-contract and easing the workload for both

evaluators and applicants.

Progress and lessons were captured in the first Annual Progress Report on Simplification,

Implementation and Enforcement(68), transmitted to the European Parliament and the Council in

October 2025, and were discussed with stakeholders in dedicated implementation dialogues with

civil-society organisations, local authorities and the private sector.

5.5. Communication & transparency

5.5.1. Communication

In 2025, communication remained an integral part of the EU’s external action, supporting political

objectives, deepening partnerships and reinforcing the EU’s credibility as a reliable, predictable and

values-based global actor. Communication, public diplomacy and visibility activities were further

68 COM(2025) 871.

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consolidated under an integrated strategic communication approach designed to ensure that

awareness, understanding and perception of the EU in both EU and partner countries match the scale

and ambition of the EU’s engagement. This approach emphasised coherent narratives,

evidence-based messaging and the systematic use of Global Gateway as the overarching brand for the

EU’s external investment strategy.

Strategic communication

The EU continued to roll out a strategic communication model that moves away from fragmented,

project-by-project visibility towards country- and region-specific campaign strategies built around

clear political priorities.

Communication resources were progressively consolidated, including under the Annual work

programme 2025 for information outreach on EU external relations, allowing economies of scale,

more consistent messaging and better support for EU Delegations to perform their communication

activities. EU Delegations remained at the centre of the EU’s external communication, with each asked

to develop a locally tailored campaign and also acting as first points of contact for local media,

institutions, civil society, youth and private-sector stakeholders.

Communicating Global Gateway milestones and flagship projects was a particular focus in 2025. The

second Global Gateway Forum in Brussels in October provided a major diplomacy moment with

President von der Leyen announcing that Global Gateway had mobilised over EUR 306 billion in

investments, surpassing the original target of EUR 300 billion. The Forum, together with the launch of

the Global Gateway Investment Hubs and the launch of calls for expression of interest to identify

promising investment proposals in the enlargement, eastern Neighbourhood and southern

Mediterranean regions, reinforced the EU’s narrative as a leading provider of sustainable, high-quality

infrastructure and investment, and offered extensive opportunities for outreach to partner

governments, the private sector and civil society.

Public diplomacy

Public-diplomacy efforts were strongly anchored in high-level political events and thematic summits.

In Sub-Saharan Africa, key milestones such as the third EU–AU Ministerial, the seventh AU–EU Summit

and the EU-Africa Business Forum coincided with the 25th anniversary of the EU–AU partnership and

served to showcase progress under the Global Gateway Africa–Europe Investment Package and

related initiatives. In Latin America and the Caribbean, the fourth CELAC–EU Summit, accompanied by

civil-society and business fora, provided an important platform to communicate the EU–LAC Global

Gateway Investment Agenda and its more than 80 advancing projects. Similar visibility and outreach

functions were fulfilled by the fourth EU Indo-Pacific Ministerial Forum, the inaugural EU–Central Asia

Summit, the EU–Central Asia Economic Forum and connectivity investors’ fora, the EU–Mongolia

Business and Investment Forum, and the first EU–Pacific Business Forum in Fiji, at which major Global

Gateway investments were announced.

In 2025, a baseline for outreach on enlargement in Member Stateswas established through the Special

Eurobarometer on enlargement. Perception surveys conducted in the Western Balkans and Eastern

Neighbourhood continued framing the outreach and engagement work in partner countries. In

countries covered by EU Enlargement and Eastern Neighbourhood policies, key milestones included

the publication of the annual Enlargement package. The 2025 Enlargement Forum put enlargement

on the radar of relevant stakeholders as a key political priority of the EU. High-level events were

marking policy milestones, such as the Intergovernmental conferences with Montenegro and Albania

marking progress in the EU accession process, the first-ever EU-Moldova summit in Chișinău and the

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EU-Western Balkans summit in Brussels. At the Ukraine Recovery Conference 2025, the EU, Ukraine

and international partners convened governments, financial institutions and businesses to mobilise

investment for Ukraine's recovery and reconstruction. Business fora, such as EU-Montenegro

Investment Conference and EU-Western Balkans investment in Albania, focused on mobilising private

investment. Leaders’ meetings held in Skopje and Tirana reviewed progress on implementing the

Growth Plan and the Reform Agendas with partners in the Western Balkans. Gradual Integration

continued to be a powerful tool to promote enlargement by offering tangible benefits of EU

membership to citizens and businesses ahead of accession.

In the Middle East, North Africa and Gulf region, key milestones for public diplomacy revolved around

events marking the inclusive consultation process pertaining to the preparation of the Pact for the

Mediterranean and its official launch on 28 November 2025, on the occasion of the 30th anniversary

of the Barcelona Process. In addition, the adoption of the Strategic and Comprehensive Partnership

between the EU and Jordan, the holding of a very first summit between the EU and Egypt (also marked

by the organisation of a high-level event on Investments, Competitiveness and Innovation), and the

organisation of the very first Palestine Donor Group embodying the EU's commitment to the stability

of the region (in addition to being a clear deliverable of the EU's Multiannual Comprehensive

Programme in support to Palestinian people), gave way to substantial communication actions.

In 2025, six Kapuscinski Development Lectures drew 3 528 participants, featuring experts like Sabina

Alkire, Karine Sargsyan, and Sonia Guajajara on topics from Artificial Intelligence and climate justice

to youth empowerment. The hybrid events strengthened the EU’s engagement with global audiences

on sustainable development.

In a continued commitment to champion media freedom and independent journalism, the Lorenzo

Natali Prize became part of the Voices Festival as a dedicated award category: Lorenzo Natali Prize -

International Best Practices in Journalism. By integrating the Prize into the Voices Festival, the aim was

to amplify its reach and impact, giving even greater visibility to the remarkable work of independent

journalists across the globe. The annual Connecting Media Communities conference also continued to

promote collaboration among independent journalists from across the world to build greater media

resilience against political and economic pressure.

These events were complemented by structured dialogue mechanisms with the private sector and

other stakeholders. The Global Gateway Business Advisory Group served as the main channel for

direct dialogue with European companies, while the operationalisation of the Global Gateway

Investment Hub created an additional contact point for investors and financial institutions. Feedback

from the 2025 AU–EU Business Forum, where 97 % of private-sector respondents expressed interest

in future editions, illustrated the effectiveness of these outreach efforts.

Public diplomacy also placed strong emphasis on youth, civil society and local authorities. More than

50 Youth Sounding Boards provided advice and feedback on EU external action, including through a

Youth Policy Dialogue on Global Gateway, and the first Youth Policy Dialogue on EU Foreign Policy.

Furthermore, multilateral fora such as the UN General Assembly High-Level Week, the High-Level

Political Forum on Sustainable Development, the International Conference on Financing for

Development, the World Social Summit, the UN Oceans Conference and the UN Conference on Trade

and Development were used to promote Global Gateway as a major contribution to the Sustainable

Development Goals and to reiterate the EU’s commitment to multilateralism, human rights,

democracy and international law. Participation in G7 and G20 processes and engagement with the

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OECD and international financial institutions similarly reinforced the EU’s narrative on sustainable,

rules-based development and quality infrastructure.

Communication campaigns and social media

In 2025, communication campaigns to raise awareness of the EU’s international partnership portfolio

were implemented across partner countries, run by Headquarters and EU Delegations. These included

thematic campaigns on EU investments in energy, a major sporting partnership to promote the Africa

EU partnership, and a series of mini-campaigns designed to showcase Global Gateway flagships

around high visibility political milestones. These campaigns delivered strong, measurable results and

demonstrated high levels of relevance and credibility for the target audience, strengthening positive

perception and trust in the EU as a partner.

Throughout the year, social media played a key role in boosting engagement and global visibility.

Content on international partnerships shifted to reflect European Commissioner for International

Partnerships Jozef Síkela’s portfolio, with a stronger focus on investment, infrastructure, and the

Global Gateway strategy. Major social media campaigns included the Global Gateway Forum and the

CELAC-EU Summit, including the LAC-EU Civil Society and Business Forums. A key milestone was the

launch of the Global Gateway LinkedIn page in August to better engage the private sector. Across all

platforms, organic content generated around 4 million impressions, helping to raise awareness and

spark global conversations.

Several communication activities were carried out in 2025 showcasing how EU foreign policy is being

implemented through concrete actions. It contributed in a tangible way to global peace and security,

profiling the EU as a reliable, credible and predictable global actor and leveraging EU interests and

partnerships abroad.Various communication campaigns were launched, including on the EU's

response to Russia’s war of aggression against Ukraine and the war's global impact. They were

complemented by regional and local campaigns on issues where the EU is recognised as an impactful

partner, such as on efforts related to job creation and social developments, mitigation and adaptation

to climate change, and the promotion of fundamental values.

Countering Foreign Information Manipulation and Interference (FIMI)

In 2025, the EU consolidated its global leadership in countering Foreign Information Manipulation and

Interference (FIMI), as malign actors — such as Russia and China — intensified efforts to undermine

democratic processes, erode EU cohesion and destabilise neighbouring and priority regions. Building

on work from previous years, the EU strengthened its ability to anticipate, expose and respond to an

increasingly complex and transnational FIMI threat environment. This was made possible by advancing

its detection, analysis and disruption capabilities, deepening its international partnerships and

strengthening its participation in multilateral frameworks.

In March, the third Report on FIMI Threats was published, introducing the FIMI Exposure Matrix, an

analytical tool that helps map, connect and attribute channels to the FIMI state-outlet apparatus. A

key achievement was the establishment of the FIMI Situational Awareness Hub, an internal

mechanism that turns insight into action, converting data analysis and open-source investigation into

early warning capabilities and coordinated responses. In June, a joint technical report, exposing

Russia’s FIMI activities in Africa through the African Initiative news agency, was published by the

European Union External Action Service (EEAS) together with the French Service for Vigilance and

Protection against Foreign Digital Interference (VIGINUM) and the Foreign, Commonwealth and

Development Office (FCDO) of the United Kingdom.

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Another significant development was the European Democracy Shield, developed jointly by the

European Commission and EEAS. Safeguarding the integrity of the information space constitutes one

of its central pillars. One of its key deliverables, the European Centre for Democratic Resilience (ECDR)

is intended to empower, protect, and promote strong and resilient democracies across the EU,

including by facilitating the cooperation between EU Member States and partners to address threats

such as FIMI.

In March, the EU High Representative/Vice President Kaja Kallas hosted the annual FIMI conference,

entitled ‘United in Response’, bringing together major stakeholders from the EU institutions, the civil

society and private sector, and international partners. The Africa FIMI Conference, held in the same

month, brought the African and European FIMI defender communities together for the first time.

At the multilateral level, the EEAS played a central role in operationalising the G7 Rapid Response

Mechanism (RRM) Collective Response Framework, and enhanced cooperation with NATO. At the

30th EU-Japan Summit in July 2025, both parties agreed to establish the inaugural Dialogue on FIMI.

Furthermore, new Security and Defence Partnerships (SDP) were signed with the United Kingdom and

Canada, including counter-FIMI cooperation as a security priority.

In a year marked by numerous national and regional elections worldwide, particular attention was

devoted to safeguarding electoral integrity, most notably in the Republic of Moldova, where the EU

provided critical support against FIMI during the Parliamentary elections.

EU Delegations and Common Security and Defence Policy (CSDP) missions and operations benefited

from enhanced training and tools to detect and respond to FIMI, especially in the Eastern

Neighbourhood, southern Mediterranean and Sub-Saharan Africa.

The EUvsDisinfo remained a key awareness-raising tool, reaching over 40 million users and having

documented more than 19 500 cases by the end of the year.

NDICI−Global Europe’s Crisis Response funding stream played a crucial part in operationalising the

EU’s toolbox by providing partner governments with the resources and capacities to improve strategic

communication and counter FIMI while also supporting a resilient information environment, to ensure

the continued financing and operations of key independent media. A whole-of-society approach

remained essential. Civil-society organisations, fact-checkers, independent media and researchers

continued to play a key role in exposing FIMI, building resilience and promoting trustworthy

information. Finally, the EU expanded sanctions targeting FIMI actors and infrastructure.

5.5.2. Transparency

The European Commission long-standing commitment to transparency in its external action is

enshrined in its political, legal and contractual framework and active participation in major

international initiatives.

The Commission promotes transparency and accountability by ensuring that data on EU-funded

projects are accessible, comparable and credible. In 2025, the EU continued reporting financial

information and project details through key international standards, including OECD-DAC's (DAC

Advance Questionnaire Creditor Reporting System (CRS) and summary DAC tables, Contract Award

report and ODA contributions to the EU Budget of EU Member States), as well as Total Official Support

for Sustainable Development (TOSSD) and the International Aid Transparency Initiative (IATI).

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The Commission supports IATI in the development of a Data Quality Dashboard to further improve

transparency and promotes peer-to-peer learning among Member States on reporting to this

international initiative.

The Commission is also committed to enhancing interoperability across international financing and

reporting systems, in line with the Financing for Development (FfD4) commitments of Sevilla, to

improve the quality, credibility and usability of data for partner countries and other stakeholders.

At the EU level, the Team Europe Explorer is a unique pubicly available interactive data tool

developped by the Commission which centralises existing OECD financial data on EU external

cooperation (ODA and TOSSD) and project-level information, allowing for disagreggation between

European Commission and EU Member States’ support to partner countries.

5.5.3. Learning

The European Commission continues to deliver on its mandate also by strengthening its focus on the

staff skills needed for the future, namely as regards the growing Global Gateway agenda and the

modernisation of the EU Delegations’ network. The Commission reinforced the training, mentoring

and coaching offer by organising it around a new comprehensive competency framework aimed at

helping staff to upskill and reskill in an structured manner, based on the key skills and roles needed,

for the Commission Directorate-General for International Partnerships specifically, to achieve its

mission.

For example, a new Global Gateway training package has been released in 2025, facilitating to staff,

as well as to external partners and the general public, the practical understanding and the

methodology used in Global Gateway projects. Also in 2025, a new learning package for staff

managing investments under the new EFSD+ mechanism was launched. This package provides access

to the latest information and best practices in sustainable finance and investment management. Along

the same lines, an increased offer of courses on private sector engagement in sustainable

development is under way.

In 2025, DG INTPA organised almost 500 different learning courses - mostly delivered remotely in

different online formats. Many of these courses are also freely available to citizens and practitioners

interested in EU international partnerships and sustainable development polices. Among them was

the Fundamental Training Package offered in four cycles, as well as regular methodological and

thematic courses.

The EU International Partnerships Academy(69) reached more than 30 000 enrolled learners coming

from more than 190 countries. The platform currently offers more than 430 different learning

resources and has reached more than 1.8 million visits from its establishment. The average user

satisfaction rate based on participants’ feedback was 82%. The Academy also collaborates with other

international organisations on the production of learning resources, for example within the Learn4Dev

donor competence network that is an effective space to co-create learning resources for international

cooperation and sustainable development practitioners.

69 https://international-partnerships.learning.europa.eu

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6. Results annexes

6.1. Introduction

6.1.1. Methodological basis for selected results reported against the Global Europe Results

Framework, the EU Results Framework, the IPA III Results Framework and the IPA Performance

Framework

This is the fifth year of financial execution of the Neighbourhood, Development and International Cooperation

Instrument-Global Europe (NDICI−Global Europe) which is implemented by Commission Directorates-General

INTPA, ENEST and MENA(70) and FPI. The main tool for monitoring and reporting results to be achieved by

NDICI−Global Europe is the Global Europe Results Framework (GERF)(71) which was launched in 2022. It is also

the fifth year of implementation of the Instrument for Pre-accession (IPA III), whose tool for monitoring and

reporting results is the IPA III Results Framework(72), also launched in 2022. IPA III is implemented by DG ENEST

and MENA.

As it takes time for results to materialise, results for NDICI−Global Europe and IPA III have started to be

achieved since 2023 and see a slow but constant increase. There is a time lag between the adoption of

Financing Decisions, contracting, and results achievements. Some results, particularly outcomes, tend to

materialise only at the end of the implementation of the interventions. Once results are achieved, the data

has to be collected in the monitoring systems, the evidence must be documented, encoded in the dedicated

IT system (OPSYS) and subsequently approved by the responsible Operational Manager(73) for non-

Neighbourhood and Neighbourhood regions, and the Instrument for Pre-accession Performance framework

(IPA PF) for the Enlargement region, which were introduced in 2018 for that purpose. This chapter of the annex

describes the methodological basis for results presented in the sections ‘Selected Results’ of chapter 3 and in

this annex.

EURF and GERF

Chapter 3 of the present Annual Report includes only results from the GERF, covering ongoing or closed EU-

funded interventions that started before 01 July 2025. Specifically, chapter 3 draws upon indicators included

in level 2 of the framework, as explained below. The annexes to the present chapter present both the EURF

and the GERF indicators and their progress of implementation (financial execution) until mid-2025.

IPA PF and IPA III RF

Chapter 3 of the present Annual Report includes results from the IPA III, covering ongoing or closed EU-funded

interventions that started before 01 July 2025. Chapter 3 draws upon indicators included in level 2 of the

framework, as explained below. The annexes present both the IPA PF and the IPA III RF indicators and their

progress of implementation (final execution) up to mid-2025.

6.1.2. Structure of the corporate results framework

All the corporate results frameworks presented here are structured around three levels of results. At the core

of the frameworks, a set of respectively 39 (GERF), 31 (EURF), 36 (IPA RF) and 110 (IPA III) indicators at output

and outcome level (Level 2) measure results achieved by EU-funded projects and programmes.

70 SWD(2022) 22 of 25 January 2022. 71 SWD(2022) 445 of 20 December 2022. 72 European Commission’s Staff Working Document (SWD)(2018) 444, ‘A revised EU international cooperation and development results framework, the Sustainable Development Goals of the 2030 Agenda for Sustainable Development and the New European Consensus on Development’. 73 Methodological notes are available online https://capacity4dev.europa.eu/resources/results-indicators_en.

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Level 1 corresponds to development progress in partner countries; that is, the medium- and long-term

development impact achieved in partnership and collaboration with others. Impacts reflect the operational

context in which EU external assistance is provided. As these indicators describe overall country progress, they

inherently reflect the combined contribution of partner countries, the EU and many other actors, and cannot

be attributed to the EU alone.

Data source Level 1: Internationally available indicators, as much as possible from the SDG database.

Level 2 focuses on development outcomes and outputs to which EU-funded interventions contribute in

collaboration with partner governments and other funding providers. In line with the principles of aid

effectiveness and effective development cooperation that emphasise partnerships and country ownership,

results at this level are presented on a contribution basis. Rather than results being based on the share of

funding provided by the EU, they represent the combined efforts of a variety of partners, including the EU,

Member States, partner country governments and public institutions, local communities, international finance

agencies, CSOs, non-profit entities and private companies. Data collection is guided by specific methodological

notes(74).

Data source Level 2: Results data are drawn from the reports of EU implementation partners (i.e., partner

countries, international organisations, Member States’ development agencies, international financial

institutions and NGOs).

Level 3 focuses on the mainstreaming of policy priorities, as measured by budgetary commitments directed at

specific cross-cutting issues (e.g., human development, gender, or nutrition), and focuses on organisational

financial data. Some of the indicators have organisational targets.

Data source level 3: Internal financial monitoring systems.

6.2. Level 2 indicators: Reporting on partner country results supported by the EU (EU RF, GERF,

IPA PF and IPA III)

Selection criteria:

For the different frameworks, the following selection criteria for ongoing and completed interventions(75) were

used:

EURF: Started before 1 July 2025 and ended after 31 December 2022. This year over 3 400 projects and

programmes reported latest results information, out of which more than 1 100 projects and programmes

contributed to at least one of the corporate indicators.

GERF: Started before 1 July 2025 and ended after 31 December 2022. This year over 3 600 projects and

programmes reported latest results information, out of which 942 projects and programmes contributed to at

least one of the corporate indicators.

IPA PF: Started before 1 July 2025 and ended after 31 December 2022. This year, 378 projects and programmes

reported latest results information, out of which 82 projects and programmes contributed to at least one of

the corporate indicators.

74 The interventions considered were financed using the following instruments: the European Development Fund (EDF); the Development Cooperation Instrument (DCI); the programmable part of the Instrument contributing to Stability and Peace (IcSP) under Art. 5; the European Instrument for Democracy and Human Rights (EIDHR); the Instrument for Nuclear Safety Cooperation; the Instrument for Greenland; and the European Neighbourhood Instrument (ENI). 75 Any intervention, funded by the old MFF 2014-2020, that ended after 31/12/2022 or is still ongoing and had not finalised reporting

against the logframe in OPSYS during previous years.

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IPA III: Started before 1 July 2025 and ended after 31 December 2022. This year 413 projects and programmes

reported latest results information, out of which 142projects and programmes contributed to at least one of

the corporate indicators.

The sample of ongoing interventions continues to expand over time. As in previous years, the results reported

cannot be interpreted as providing a full picture of the interventions financed by the EU in the countries

concerned.

Methodology notes: Methodology notes are available for each of the frameworks’ indicators to ensure that

data from the various reporting sources could be aggregated consistently. These notes provide definitions and

data sources clearly explaining what type of interventions should be included when reporting against an

indicator. For GERF and EURF, the notes can be found at https://capacity4dev.europa.eu/resources/results-

indicators/global-europe-results-framework_en

For IPA III, the notes can be found at https://capacity4dev.europa.eu/resources/results-indicators/ipa-iii-

methodological-notes_en

Data: Results data is drawn from the reports of EU implementation partners (i.e., partner countries,

international organisations, Member States’ development agencies, international financial institutions and

NGOs). These organisations use data collected from a variety of sources, such as the management information

system of partner countries, the individual project monitoring frameworks of implementation partners and

representative surveys.

Reporting: The relative figures report cumulative numbers. The numbers are cumulated with careful

consideration of potential double counting across projects and programmes and across years. The approach

taken is to err on the side of safety, so any potentially double counted results are excluded from the results

reported.

For some level 2 indicators in GERF and EURF, the majority of results comes from one single intervention, in

most cases from funds. For GERF, the concerned results are scaled down by the size of the EU financial

contribution relative to the total budget of the undertaking; this process is used for the concerned indicators

and only if the EU contributes with less than 50% to the overall budget of the fund. Previously under EURF,

the results reported have been calculated using a contribution-based approach. This means that where an

intervention has been financed by the EU jointly with other funders – such as partner country governments or

other donors – the overall results of the collective effort are reported, rather than those linked to the share

of funding provided by the EU specifically.

EURF indicator 2.30 ‘Number of countries supported by the EU to strengthen revenue mobilisation, public

financial management and/or budget transparency’ is an exception in terms of scope and data collection. In

addition to the interventions included in the exercise, this indicator draws on all countries with an ongoing EU

budget support contract.

EURF indicators 2.9 ‘Number of individuals with access to electricity with EU support through a) new access,

b) improved access’, 2.10 ‘Renewable energy generation capacity installed with EU support (MW)’ and 2.21

‘Greenhouse gas emissions avoided with EU support (tonnes CO2eq)’ (76) also include reporting by the EU–

Africa Infrastructure Trust Fund (EU-AITF). EURF 2.9 reports inferred figures, which were calculated using the

KfW model for estimating access using electricity generation capacity, the data will not be updated again given

76 Methodology for this indicator can be found here: https://capacity4dev.europa.eu/sites/default/files/media/2.21_- _ghg_emissions_avoided_10-2019.pdf

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the change to OPSYS reporting and the 2023 value will remain. EURF 2.10 and EURF 2.21 report expected

results.

Given its use in the Gender Action Plan III (GAP III), the new GERF indicator 2.37 ‘Number of people benefitting

from EU-funded interventions to counter sexual and gender-based violence’ is already reported upon,

numbered as EURF 2.31.

GERF indicator 2.19 ‘Number of countries supported by the EU to strengthen revenue mobilisation, public

financial management and/or budget transparency’ is an exception in terms of scope and data collection. In

addition to the interventions included in the exercise, this indicator draws on all countries with an ongoing EU

budget support contract.

GERF indicators 2.3 ‘Number of individuals with access to electricity with EU support through a) new access,

b) improved access’, 2.4 ‘Renewable energy generation capacity installed with EU support (MW)’ and 2.7

‘Greenhouse gas emissions avoided with EU support (tonnes CO2eq)’ (77) are reporting values actually

achieved.

GERF indicators 2.20 ‘Number of migrants, refugees, and internally displaced people or individuals from host

communities protected or assisted with EU support’, 2.32 ‘Number of food insecure people receiving EU

assistance’ and, 2.39 ‘Number of people directly benefiting from EU supported interventions that aim to

reduce social and economic inequality’ can be used while more specific sectoral indicators are used as well.

Thus, beneficiaries should not be aggregated between indicators.

Results by sex of beneficiaries: The SWD(2018) 444(78) and SWD(2022) 455 final(79) mentions that, where

possible, results are to be disaggregated by sex. Where this disaggregation has not been provided, it is either

because this was not relevant for the indicator in question (e.g., GERF 2.2 ‘Agricultural and pastoral ecosystems

where sustainable management practices have been introduced with EU support’) or because the data were

not available. Due to data availability at intervention level, the sum of sex-disaggregated results may not equal

the total results figures. These cases are also present in IPA related results data.

Results by country: When presenting results broken down by country/IPA beneficiary, figures are reported

according to the country where the result was achieved. While efforts have been made to capture this detailed

level of reporting as far as possible, data were not always available at this level; for example, in the case of

multi-country regional interventions where country-level results were not reported (e.g. results are presented

under the label ‘Western Balkans regional results’). Where the EU has funded interventions in overseas

countries and territories, results achieved are reported at this level. This approach is also taken where

indicators measure the number of countries supported in a specific sector.

Quality: The data are subjected to an extensive quality assurance process to ensure that:

• The data sources are reliable;

77 Methodology for this indicator can be found here: https://capacity4dev.europa.eu/sites/default/files/media/2.21_- _ghg_emissions_avoided_10-2019.pdf 78 European Commission’s Staff Working Document (SWD)(2018) 444, ‘A revised EU international cooperation and development results framework, the Sustainable Development Goals of the 2030 Agenda for Sustainable Development and the New European Consensus on Development’. 79 These annexes will be available for download on the International Partnerships website. The link is not active yet, as these documents cannot be uploaded and made publicly available before the adoption of this report. The link will therefore be active in the Publications Office’s version (and not in this Interinstitutional version going through adoption). Until then, these annexes are available in a zip file accompanying the report and its Staff Working Document. To note that some of the results, including efforts to meet the targets, also feature in chapter 3.

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• The link between the indicators from the monitoring system of the intervention and the indicators

from the relative framework is robust; and

• The individuals who have benefited from the same intervention over different years, and/or from

different interventions ending and/or ongoing in the same year, are only counted once.

However, given the great variety of data sources used, the data quality may vary.

Joint reporting with EU Trust Fund for Africa interventions: As part of the 2018 revision of the results

framework, efforts have been made to harmonise indicator methodologies to enable joint reporting with

other monitoring systems. Since 2024 the EU Trust Fund for Africa interventions were fully incorporated in

OPSYS, and thus now complete reporting against all relevant EU Result Framework indicators.

6.3. Level 3: Reporting on policy mainstreaming as measured by budgetary commitments

Level 3 indicators report on financial flows in 2025 and include all funds managed by the financing instrument

NDICI−Global Europe. Level 3 reporting excludes funds under the previous MFF (2014-2020), i.e., the

presentation of payments does not present all payments made in 2025.

Some of the Level 3 indicators have associated spending targets, provided in the legal basis to the

NDICI−Global Europe (e.g., climate, social inclusion and human development, migration and forced

displacement) and a gender target. In some cases, the priority is derived from formal EU policy commitments

endorsed by the Council (e.g. Gender Action Plan III) or international commitments made by the EU (e.g.

nutrition).

All ten Level 3 indicators from the 2018 EURF have been included in the GERF, with a couple of minor

adjustments (i.e., two indicators from the 2018 EURF have been merged, and the methodology to calculate

the indicator on human development has been updated). This confirms the stability of the EU commitment to

providing support in these areas. Level 3 indicators, similar to those of the GERF, are also part of IPA III RF.

6.4. Latest results

Please find below results under the following link(80):

For the previous MFF (2014-2020): a detailed overview of all data (Excel format).

for the current MFF (2021-2027): a detailed overview of all data (Excel format).

Consolidated version of the data of both MFFs (PDF format).

80 These annexes will be available for download on the International Partnerships website. The link is not active yet, as these documents cannot be uploaded and made publicly available before the adoption of this report. The link will therefore be active in the Publications Office’s version (and not in this Interstinstitutional version going through adoption). Until then, these annexes are available in a zip file accompanying the report and its Staff Working Document. To note that some of the results, including efforts to meet the targets, also feature in chapter 3.

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6.5. Results of the implementation of the Gender Action Plan III

Table 1. Progress on the GAP III’s institutional and strategic objectives and indicators for the European Union

Institutions

Objective and targets of the GAP III (Part I) Progress in 2025

Objective 1. Increase the number and the funding of new actions that are gender mainstreamed (OECD Gender Marker 1) and targeted (G2)

Target 1: 85% of new actions are gender responsive/targeted (G1+G2) by 2025(81)

On track – Over the period 2021–2025, 79% of actions were gender-responsive or targeted. Under NDICI–Global Europe, 83% of actions were marked G1 or G2 (out of which 4.5% were marked as G2). The corresponding shares were 79% under IPA III and 59% under CFSP. In 2025, 76% of new actions were gender-responsive or gender-targeted, including 88% for DG INTPA, 85% for DG ENEST, 89% for DG MENA, 47% for FPI, and 81% for other Comission Directorate-Generals (DGs).

Target 2: 100% of new actions not targeting gender equality (G0) justified over 2021–2025

In progress – 60% of new actions marked G0 were correctly justified in 2025(82).

Target 3: At least two rapid response actions or peace and stability themed actions per year

Target achieved – 76% (191 out of 252) of rapid response actions approved in 2021–2025 are gender mainstreamed. 51% of new rapid response actions (21 out of 41) were gender mainstreamed in 2025.

Target 5: At least one gender-targeted action (G2 action) per country allocation over 2021–2025

In progress – By the end of 2025, 60 countries had at least one G2 action. In 2025, nine new country- level G2 actions were committed. Since 2021, a total of 68 country-level G2 actions have been adopted.

Target 6: At least one gender-targeted action (G2) per regional allocation over 2021–2025

Target achieved – By the end of 2025, all six regions (Africa, Asia-Pacific, Latin America and the Caribbean, the Eastern Partnership, the Western Balkans and Türkiye, and the Southern Neighbourhood) had at least one G2 action. A total of 18 regional and global G2 actions were adopted between 2021 and 2025.

Target 7: Increase amount of funding in support of gender equality and women’s empowerment actions (G1 and G2)

In progress – between 2021 and 2025, commitments for actions contributing to gender equality (marked G1 or G2) totalled EUR 58.610 billion, representing 82% of all commitments under NDICI, IPA III and CFSP during that period. Of this amount, EUR 1.374 billion, or 2%, was committed to gender-targeted actions. In 2025

81 Data cover all new actions under the MFF 21-27 for NDICI-Global Europe, CSFP and IPA III. 82 Data calculated on a sample of actions from DG INTPA, as done for 2021, 2022, 2023 and 2024.

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Objective and targets of the GAP III (Part I) Progress in 2025

alone, 80% of total commitments, amounting to EUR 10.644 billion, supported GEWE.

Target 8: Increase amount of funding directed towards women’s rights organisations and movements (WROs)

In progress – In 2025, commitments to women’s rights organisations and movements amounted to EUR 47.3 million, bringing the total volume of commitments adopted over 2021–2025 to EUR 295 million.

Target 9: Number of new EU-funded humanitarian programmes marked 1 or marked 2 by the DG ECHO Gender- Age Marker Target: In 2024 (for 2021 start date projects): 95%

In progress – 81% of projects with a start date in 2025 were marked as 1 or 2 by the DG ECHO gender and age marker(83).

Objective 2. Gender perspective is mainstreamed in all actions under the investment framework Target: 85% of all blending operations and guarantees are gender responsive/targeted (G1/G2) by 2025

In progress – Between 2021 and 2025, 67% of blending operations and 70% of guarantee agreements were marked G1 or G2. In 2025, 71% of blending operations (45 in total) and 85% of guarantees (20 in total) were gender- mainstreamed. For DG INTPA, the corresponding shares were 80% for blending operations (30 in total) and 88% for guarantees (17 in total). For DG ENEST, the figures were 50% for blending operations (14 in total) and 50% for guarantees (2 in total). In MENA, all blending operations and guarantees were gender-mainstreamed, with 1 out of 1 operation and 1 out of 1 guarantee marked accordingly.

Objective 3. Gender Responsive Budgeting is promoted Target: At least 20% of new actions supporting public finance management (PFM) reforms include a gender budgeting component

Target achieved – Since 2021, 62% of actions supporting PFM included a gender responsive budgeting component (65% for DG INTPA, 80% for DG ENEST and 33% for DG MENA). In 2025, 70% of all new actions in PFM had a gender budgeting component.

Objective 4. Gender specific and/or sex-disaggregated indicators are systematically used Target: 85% of new actions by 2025 have at least the latest progress data entry sex-disaggregated or gender-specific, as mandated by the indicator formulation

In progress – By the end of 2025, 49% of interventions that monitor gender-relevant indicators and had already started reporting had provided sufficient data for those indicators(84).

Objective 5. GAP III implementation is informed by sound gender profile and framed in ‘country-level implementation plans’ (CLIPs)

Target 1: One ‘country-level implementation plan’ agreed per country and transmitted to headquarters (HQ)

On track – By the end of 2025, 97% of EU Delegation had a CLIP, representing 132 out of 136 countries(85).

83 From 2024 onwards ECHO presents the results on the analysis of the gender and age markers of the projects starting in the given year. Previous annual reporting data was taken from the Gender-Age Marker Assessment Report (2018-2021). 84 the calculation is based on a gender data score, which measures the percentage of gender-mainstreamed interventions that report results and provide sufficient data on gender-specific indicators. The data cover IPA III, NDICI, the Overseas instrument, and the Energy instrument, and refer only to predefined indicators. 85 For the purpose of this indicator, only ODA recipient countries have been considered.

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Objective and targets of the GAP III (Part I) Progress in 2025

Target 2: One gender analysis per priority sector in all countries

In progress – 88% of EU Delegations had conducted at least one gender sector analysis, and 53% had gender sector analyses covering all their priority sectors.

Objective 6. Gender perspective is integrated in ‘Working Better Together’ approaches and in broader coordination Target: 85% of new joint programming documents over 2021- 2025 reference and integrate the priorities of GAP III

Target achieved – Since 2021, 87% of all EU actions contributing to Team Europe Initiatives (TEI) were gender mainstreamed. In 2025, 91% of TEI were gender marked.

Objective 7. Political, security and sectoral policy dialogues integrate a gender perspective

Target 1: All EU Delegations are engaged in at least one high- level dialogue on gender equality and women’s empowerment with institutional actors per year per country

In progress – In 2025, 76% of EU Delegations reported having held at least one high-level dialogue with the partner country’s government on gender equality and women’s empowerment.

Target 2: All EU Delegations are engaged in dialogue on gender equality and women’s empowerment with civil society at least once per country per year over 2021- 2025

In progress – In 2025, 88% of EU Delegations held a high-level dialogue on gender equality and women’s empowerment with civil society, including women’s and girls’ organisations In addition, 19% reported doing so through a structured dialogue framework established with civil society organisations in the partner country.

Target 3: At least one dialogue per year with civil society on Women, Peace and Security (WPS) policy per (relevant) partner country

Target achieved – In 2025, 74% of EU Delegations consulted and/or involved civil society organisations in dialogues on WPS.

Objective 8. All EU actions implemented at regional level are gender mainstreamed

Target 1: a regional/multi-country gender profile conducted or updated in at least four regions by end 2022

Target not achieved – by 2025, only three regions had developed regional or multi-country gender profiles: East Asia, the Eastern Partnership, and the Southern Neighbourhood. In East Asia, two profiles covered ASEAN countries, while the Pacific Islands produced one gender profile and three sectoral profiles. The Eastern Partnership produced five regional analyses, and the Southern Neighbourhood produced one profile.

Target 2: At least three regions have identified priorities to implement GAP III by end 2022

Target achieved – By 2025, five of the six regions had established regional or sub-regional priorities: Africa, Asia-Pacific, Latin America and the Caribbean, the Eastern Partnership, and the Southern Neighbourhood.

Objective 9. The EU takes on a coordinated leadership on gender equality and women’s empowerment in international meetings (UN, AU, NATO, ASEAN, OSCE, G7, G20, etc.)

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Objective and targets of the GAP III (Part I) Progress in 2025

Target 1: At least two joint EU positions for key gender international/regional events and negotiations per year

Target achieved – The EEAS reported at least 11 joint positions, of which six were delivered during the 69th Session of the UN Commission on the Status of Women (CSW).

Target 2: Statements and commitments made by EU officials on gender equality and women’s empowerment (GEWE) and Women, Peace and Security (WPS)

Target achieved – The EEAS reported 25 statements and 6 commitments on GEWE and WPS, including in fora such as the UN, the UN Security Council, the UN Human Rights Council, the G20, and the OSCE, as well as at summits with the African Union, Canada, and CELAC. In addition, 69% of EU Delegations reported that their Head of Delegation made at least one statement or commitment on GEWE and WPS in 2025.

Target 3: EU and its Member States’ bilateral and regional dialogues that include WPS-related priorities and commitments

Target achieved – The EEAS reported 34 bilateral, 6 regional and 3 multilateral dialogues that included WPS-related priorities and commitments. Topics included: political participation, conflict prevention and mediation and combatting GBV. 53% of EU Delegations were engaged in bilateral or regional dialogues on WPS-related priorities and commitments in 2025.

Target 4: EU bilateral and multilateral/regional agreements and/or joint activities and programmes on WPS, gender equality and women’s empowerment with partners inter alia UN, AU, NATO, CoE, OSCE, G7, G20 and ASEAN

Target achieved – The EEAS reported 21 agreements, activities or programmes, including 7 with the UN.

Target 5: EU commitments/ engagements with the humanitarian initiative ‘Call to Action on Protection from Gender-based Violence in Emergencies’ and new Road Map 2021–2024

Target achieved – The EU participated to the relevant events and reported on its eight commitments. In particular, ECHO contributed to the drafting of the new Roadmap, collected and shared GBV and gender funding data, and increased humanitarian funding for SRH and GBV response from EUR 70 million to EUR 114 million in 2025.

Objective 10. Gender-responsive leadership enhanced

Target 1: 50% of women in senior and middle management positions in COM and EEAS services, EU Delegations, CSDP missions and operations

In progress – By the end of 2025, women held 47% of senior management positions in the Commission, 45% in EEAS headquarters, and 26% in EU Delegations. At middle-management level, the figures were 50% in the Commission, 36% in EEAS headquarters, and 39% in EU Delegations. Women also held 11% of management positions in CSDP missions and operations.

Target 2: The minimum of 33% proportion of women mediators, negotiators and technical experts present in formal as well as informal peace processes where the EU and its MS are engaged, with specific mention of those in high-level and leadership positions

In progress – In 2025, women accounted for 27% of EU Special Representatives, with 3 out of 11 positions held by women. They served in the Horn of Africa, the South Caucasus, and as EU Special Representative for Human Rights.

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Objective and targets of the GAP III (Part I) Progress in 2025

Target 3: Gender balanced personnel in EU Election observation missions

Target achieved – 50% of the observers deployed in 2025 were women.

Target 4: 50% women appointed as Deputy Chief Observer within EU election observation missions

In progress – 43% of the Deputy Chief Observers were women (3 out of 7).

Target 5: 100% of management trained on gender equality and women’s empowerment (GEWE) and on GAP III

In progress – Since the adoption of GAP III, 40% of senior and middle managers in EU Delegations have been trained on gender equality and women’s empowerment (GEWE) and/or on GAP III, covering 62% of EU Delegations. The estimated figure for headquarters is 37%.

Target 6: 100% of men and women staff at all levels, a) EU HQ b) diplomatic staff, c) civilian staff and d) military staff, participating in CSDP missions and operations that are trained on WPS (WPS Ind. 4)

In progress – In 2025, 100% of staff in CSDP civilian missions, military missions and military operations received training on women, peace and security (WPS). Overall, this meant that 70% of EEAS staff received WPS training.

Target 7: 100% of staff trained on conduct and discipline that includes content related to SEA and harassment including SH, among a) EU HQ b) diplomatic staff, c) civilian staff and d) military staff participating in CSDP missions and operations (WPS Ind. 5)

In progress – 100% of staff in CSDP civilian missions, military missions and military operations, as well as 18% of staff at EEAS HQs received training on conduct and discipline, including content on sexual exploitation and abuse (SEA) and harassment, including sexual harassment (SH).

Objective 11. Gender Advisors, Focal Persons/Points support for the integration of a gender perspective in EU policies, interventions, and dialogues

Target 1: All EU Delegations and headquarters external services have a gender focal person (GFP)

In progress – 87% of services had a GFP—81% at HQs and 95% in EU Delegations. In total, there were 407 GFPs, including 284 at headquarters and 123 in EU Delegations.

Target 2: Those gender focal persons have corresponding tasks in their job description

In progress – Overall, 60% of GFPs had these responsibilities included in their job description, with the share reaching 66% at HQs and 50% in EU Delegations.