Southern Partners

The European Neighbourhood Policy (ENP) covers Algeria, Egypt, Israel, Jordan, Lebanon, Libya, Morocco, Palestine, Syria and Tunisia. It consists of bilateral policies between the EU and the 10 individual partner countries, plus a regional cooperation framework, the Union for the Mediterranean. The EU boosted support for democratic transformation under the ENP in 2011, in response to the uprisings in its southern neighbourhood. It further reviewed the ENP in 2015.

Legal basis

• Article 8 of the Treaty on European Union;
• Title V of the Treaty on European Union: the EU’s ‘external action’;
• Articles 206-207 (trade) and 216-219 (international agreements) of the Treaty on the Functioning of the European Union.

Instruments

The European Neighbourhood Policy (ENP) is implemented through bilateral (tailor-made for each country), regional, neighbourhood-wide and cross-border cooperation programmes (between EU countries and neighbourhood countries sharing a land border or sea crossing). Association agreements provide the legal basis for the EU’s bilateral relations with Algeria, Egypt, Israel, Jordan, Lebanon, Morocco, the Palestinian Authority and Tunisia. The association agreement initialled with Syria before the Syrian Government’s violent crackdown on public protests in 2011 was never signed. The negotiations for an EU-Libya framework agreement were suspended in February 2011 and have yet to be resumed.

In the framework of the ENP, the EU and its southern partners (except Libya and Syria) have adopted bilateral action plans, partnership priorities or association agendas. These establish agendas for political and economic reform with short- and medium-term priorities of between three and five years. Reflecting the needs, interests and capacities of the EU and each partner, ENP action plans are aimed, in particular, at developing democratic, socially equitable and inclusive societies, promoting economic integration and education, developing small and medium-sized enterprises and agriculture, and facilitating the movement of people across borders.

The European Neighbourhood Instrument (ENI) was the key EU financing instrument for bilateral cooperation with the southern partners for the 2014-2020 period. The new Neighbourhood, Development and International Cooperation Instrument (NDICI) – ‘Global Europe’ – frames the EU’s cooperation with these countries for the period 2021-2027. Under the new NDICI ‘Global Europe’ instrument, an increased emphasis on blending EU grants with loans from European and international financing institutions allows partner countries to unlock substantial levels of concessional funding for investments. The new system of guarantees provided for under the NDICI ‘Global Europe’ instrument gives access to additional funds from the crowding-in of both public and private investors.

On 9 February 2021, the Commission and the High Representative of the Union for Foreign Affairs and Security Policy adopted a joint communication proposing an ambitious and innovative new Agenda for the Mediterranean to relaunch and strengthen the strategic partnership between the European Union and its Southern Neighbourhood partners. This new agenda focuses on five policy areas: a) human development, good governance and the rule of law; b) resilience, prosperity and digital transition; c) peace and security; d) migration and mobility; and e) the green transition – climate resilience, energy and the environment. At the same time, a dedicated Economic Investment Plan for the Southern Neighbours aims to aid the economic recovery and improve the quality of life of people in the region, including following the COVID-19 pandemic.

The EU is also seeking to advance market access and cooperation on migration and mobility issues with its southern partners. Mobility partnerships have been concluded with Morocco, Tunisia and Jordan, and negotiations are ongoing with Lebanon. A number of projects have been implemented within these frameworks, in particular under the Migration Partnership Facility, launched in 2016. In addition, regional and bilateral initiatives on migration and mobility are being funded under the EU Emergency Trust Fund for Africa, the North Africa window, in Algeria, Egypt, Libya, Morocco and Tunisia. The EU Regional Trust Fund in Response to the Syrian Crisis, the ‘Madad Fund’, has provided support to Syrian refugees, internally displaced persons (IDPs) and local communities in Lebanon, Jordan, and Egypt. The Madad Fund officially expired in December 2021, though projects funded by it will run until June 2025.

The EU’s relations with its southern partners will benefit from new impetus in the context of the ongoing work for a new, comprehensive EU Middle East strategy and the New Pact for the Mediterranean.

The Union for the Mediterranean (UfM), launched in 2008 to revive the Euro-Mediterranean Partnership, provides a regional framework for cooperation between the EU Member States and 15 Mediterranean countries, including the 10 southern partners.

Current status

A. Algeria

As a major regional player and an important energy producer, Algeria is a key EU partner in the southern neighbourhood. An association agreement entered into force in 2005. Since 2013, Algeria has also been involved in the European Neighbourhood Policy. Strong relations in the energy sector led to the establishment of the EU-Algeria strategic partnership on energy in 2015. The partnership on renewable energy is expected to contribute to achieving the EU’s carbon neutrality by 2050. The EU and Algeria have not yet adopted partnership priorities for 2021-2027, so work is continuing on the basis of those adopted at the Association Council of March 2017. The partnership priorities set up a renewed framework for political engagement and enhanced cooperation, with a focus on: (i) governance and fundamental rights; (ii) socio-economic development and trade; (iii) energy, environment and climate change; (iv) strategic and security dialogue; and (v) the human dimension, migration and mobility. In 2024, Algerian authorities publicly expressed their intention to revise the association agreement, which they considered unbalanced in terms of trade relations. In 2024, the EU launched dispute settlement proceedings against Algeria and requested consultations with the Algerian authorities to address restrictions imposed on EU exports and investments, which are not in line with the liberalisation commitments under the association agreement. There is high potential to enhance cooperation between the EU and Algeria in various sectors, in particular on migration and regional security.

B. Egypt

Relations between the European Union and Egypt are governed by an association agreement, which has been in force since 2004. In June 2022, the ninth EU-Egypt Association Council confirmed that the two parties had an effective and multifaceted partnership by adopting new partnership priorities to guide the relationship until 2027. These are in line with the new EU Agenda for the Mediterranean, its Economic and Investment Plan and Egypt’s Sustainable Development Strategy Vision 2030. The EU and Egypt decided to further deepen dialogue and cooperation around three main priorities: (i) sustainable modern economy and social development; (ii) partnering in foreign policy; and (iii) enhancing stability. In March 2024, the EU and Egypt agreed to elevate their relationship to the level of a strategic and comprehensive partnership covering other priority areas such as political relations, macroeconomic stability, sustainable investment and trade, migration, security and human capital development. The EU financial package which underpins this partnership is worth EUR 7.4 billion for 2024-2027.

C. Israel

Based on the 2000 association agreement, the relationship between the EU and Israel developed dynamically in subsequent years, with a substantial expansion across many sectors. The EU and Israel have close political, cultural, people-to-people, tourism, trade and investment relations, as well as significant economic, financial, research and innovation and security cooperation, including on crisis management and civil protection. The EU-Israel action plan, agreed in 2005, is based on shared common values of democracy, respect for human rights, the rule of law and basic freedoms, and it promotes the integration of Israel into European policies and programmes. In 2009, the EU decided that, in order for relations to be upgraded to ‘advanced’ status, there would have to be progress in the Middle East Peace Process (MEPP). Cooperation continues on the basis of the 2005 ENP Action Plan, which came up for renewal in January 2025. The Association Council is considering the adoption of a recommendation to extend its validity by two years.  The EU position regarding the adoption, by the Association Council, of a recommendation to extend its validity by two years, is being discussed at the level of Council working groups. The extension of the Action Plan would provide a longer period to engage in strategic dialogue in the context of the conflict in the Gaza Strip following Hamas’ brutal terrorist attacks on Israel on 7 October 2023 and the volatility in the region, which do not provide an environment conducive to entering into strategic discussions in the short term. As part of the EU fight against antisemitism in all its forms and manifestations, the EU has reinforced the EU-Israel High-Level Seminar on combating racism, antisemitism and xenophobia, co-organised annually. In line with the EU Strategy on combating antisemitism and fostering Jewish life (2021 - 2030), the Council Declaration on fostering Jewish life and combating antisemitism of 15 October 2024 stresses the EU’s determination to fight antisemitism online, in particular antisemitic hate speech, conspiracy myths, Holocaust denial and distortion.

D. Jordan

The EU considers Jordan an important partner that plays a stabilising role in the Middle East. The EU-Jordan association agreement, in force since May 2002, provides the legal basis for this bilateral relationship. Jordan was the first Mediterranean partner country to conclude technical negotiations leading to an ‘advanced status’ with the EU in 2010. An ENP action plan was adopted in 2012 and new EU-Jordan Partnership Priorities were agreed in June 2022 to guide the relationship until 2027, in line with the new EU Agenda for the Mediterranean and its Economic and Investment Plan. The EU and Jordan will further deepen their dialogue and collaboration around three objectives: (i) strengthening cooperation on regional stability and security; (ii) promoting sustainable economic stability; (iii) strengthening good governance and respect for human rights. In January 2025, the EU and Jordan agreed to elevate their relationship, signing a Joint Declaration to launch a new Strategic and Comprehensive Partnership covering five key joint priorities: (i) political relations and regional cooperation; (ii) security and defence; (iii) economic resilience, trade and investment; (iv) human capital; (v) migration, protection of and support to refugees. To support the partnership, the EU provided a financial package of EUR 3 billion for 2024-2025 (consisting of grants, macro-financial assistance and additional investments).

In October 2014, the EU and Jordan launched a Mobility Partnership to manage mobility and migration. Jordan also receives funding under the ‘Madad Fund’, the EU Regional Trust Fund in Response to the Syrian Crisis and, more recently, through the NDICI instrument. Since 2011, the EU has committed more than EUR 4 billion for the response to the Syrian crisis in Jordan.

E. Lebanon

Relations are based on the EU-Lebanon association agreement, in force since 2006, the 2016 EU-Lebanon Partnership Priorities and the EU-Lebanon Compact, addressing the impact of the Syrian crisis on Lebanon. The validity of the existing partnership priorities has been extended until new priorities can be agreed under the NDICI ‘Global Europe’ instrument. The partnership priorities focus on: (i) security and countering terrorism; (ii) governance and rule of law; (iii) fostering growth and job opportunities; (iv) migration and mobility; (v) mechanisms for dialogue and mutual coordination. EU-Lebanon cooperation includes specific support for capacity development and institution building, as well as measures to benefit civil society. The EU-Lebanon Association Council, held in July 2017, agreed to pursue discussions with a view to the signature of a Mobility Partnership. A country of 4.4 million inhabitants, Lebanon currently hosts around one million registered Syrian refugees. Lebanon receives funding under the ‘Madad Fund’, the EU Regional Trust Fund in Response to the Syrian Crisis. In December 2020, the EU announced that it would launch, together with the UN and the World Bank, a ‘Reform, Recovery and Reconstruction Framework’ to ‘build back a better Lebanon’ guided by the principles of transparency, inclusion and accountability. However, in addition to a people-centred recovery, substantial EU assistance for the reconstruction of a democratic, transparent, inclusive and prosperous Lebanon will continue to be conditional on tangible progress on the necessary reforms. Since 2011, EU support for Lebanon has amounted to more than EUR 3.5 billion, of which EUR 2.6 billion has been committed in support of Syrian refugees and Lebanese host communities.

The NDICI is the main instrument for the EU’s cooperation with and development support for Lebanon for the period 2021-2027. The EU is providing a financial assistance package for Lebanon worth EUR 1 billion for 2024 to 2027. This package will strengthen basic services such as education, social protection and health for people in Lebanon, accompany urgent economic, financial and banking reforms and support border management. In August 2024, the Commission approved the first EUR 500 million of this package.

F. Libya

Since the fall of the Gaddafi regime in 2011, Libya has been sliding into political turmoil, instability and civil war, against the background of complex political, territorial, social and tribal divisions. Libya is also known as a Sahelian transit route for human trafficking and contraband. In this context, the EU is seeking to assist Libyans in establishing a stable, inclusive and peaceful state. To this end, the EU supports the UN’s mediation efforts to find a political solution to address ongoing divisions and rivalry. Libya does not have an association agreement or other contractual agreement with the EU, but the country is eligible for funding under the NDICI ‘Global Europe’ instrument and other EU financial instruments. Migration-related challenges remain at the core of the EU’s engagement with Libya, requiring an immediate EU response to tackle the most urgent needs. Libya has therefore received funding through the North Africa window of the EU Emergency Trust Fund for Africa, which tackles the root causes of irregular migration and provides support to protection and migration management.

G. Morocco

Morocco has a very dynamic partnership with the EU and strong cooperation in many sectors. An association agreement has been in force since 2000 and a new ENP action plan was adopted in 2013. The country was granted ENP ‘advanced status’ in 2008, reflecting the ambition to strengthen EU-Morocco cooperation and to further support economic and political reforms. The EU-Morocco mobility partnership was launched in June 2013. In 2021, under the new EU Trade Policy Review, the EU offered to discuss modernising trade and investment relations with Morocco, to better face current challenges. In October 2024, the EU took note of the Court of Justice of the European Union’s judgments C-778/21 P, C-798/21 P, C-779/21 P and C-799/21 on the appeals against the judgment of the General Court of 29 September 2021, as well as the reply to the preliminary ruling request in case C-399/22 on the labelling of fruit and vegetables from the territory of the Western Sahara. The EU expressed its intention to preserve and strengthen the EU-Morocco partnership through the joint PCOM-HRVP Joint Declaration on 4 October 2024 and the European Council conclusions of 17 October 2024.

H. Palestine

The EU is the leading financial supporter of the Palestinian Authority (PA), with an indicative annual bilateral allocation of around EUR 300 million. The overall objective of EU support is to help build the capacities of a future viable, independent and democratic Palestinian state, coexisting in peace and security with Israel and other neighbours. The legal basis for the EU’s relations with the PA is an interim association agreement on trade and cooperation, concluded in 1997. The EU and the PA have signed an ENP action plan, which entered into force in 2013. That same year, the EU offered Israel and the future state of Palestine ‘Special Privileged Partnerships’ providing an unprecedented package of political, economic and security support subject to the conclusion of a future final status agreement. The EU is active in the Middle East Peace Process (MEPP) and is a member of the Middle East Quartet, working towards a two-state solution based on the 2003 Roadmap for Peace. In June 2022, the Commission approved a new bilateral allocation to Palestine worth EUR 224.8 million. This new assistance package is earmarked to support the Palestinian Authority and crucial projects in the occupied Palestinian territory. In 2023, the EU initially allocated close to EUR 28 million in humanitarian aid. Following the 7 October terrorist attacks, the EU mobilised an additional EUR 75 million.In 2024, the EU earmarked over EUR 125 million in humanitarian funding for Palestinians in need, over EUR 50 million of which is directly being used to tackle food shortages and cover medical supplies and other basic needs. In March 2024, the Commission allocated an additional EUR 68 million to support the Palestinian population across the region. The extra funding will be implemented through international partners, such as the Red Cross and the Red Crescent. This comes in addition to the EUR 92 million of aid which was implemented through the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNWRA) in 2024, bringing the total to EUR 160 million. Following the terrorist attacks of Hamas in Israel in October 2023, the Commission launched an urgent review of the EU’s assistance for Palestine. Following the review, the Commission’s NDICI committee launched an urgent procedure to pay the PA the funds allocated to the PEGASE programme for 2023, worth EUR 122 million, and has set aside EUR 125 million in humanitarian support for 2024 to ensure continued support for the people of Palestine. Following the ceasefire and hostage release agreement, in January 2025 the Commission announced a new aid package for Gaza worth EUR 120 million. On 14 April 2025, on the occasion of the first ever High-Level Political Dialogue between the European Union and the PA, the Commission announced a multiannual programme for Palestinian recovery and resilience worth up to EUR 1.6 billion to foster Palestinian recovery and resilience. With this programme, the EU reiterates its unwavering support for the Palestinian people and its commitment to a lasting and sustainable peace based on the two-state solution.

It will cover the period from 2025 to 2027 and is structured around three pillars:

1. Support for services for Palestinian people: around EUR 620 million in grants of direct assistance paid to the PA’s budget. This support is for the PA to address the most urgent needs of the public administration. The funds will also help the PA to continue delivering services to its people.
2. Support for the recovery and stabilisation of the West Bank and Gaza: around EUR 576 million in grants is proposed to support specific projects on the ground in order to foster economic recovery and resilience in the West Bank, East Jerusalem and Gaza, once the situation on the ground makes this possible.
3. Support for the private sector: as part of the Multiannual Comprehensive Programme for Palestine 2025-2027, the Commission will provide support with loans totalling up to EUR 400 million from the European Investment Bank (EIB) for the Palestinian private sector, subject to the approval of the EIB’s governing bodies.

I. Syria

After over a decade (since 2011) of suspended bilateral cooperation between the EU and the Government of Syria, the fall of the Assad regime on 8 December 2024 marked a historic moment and a possible opening for the resumption of relations. On 19 December 2024, the European Council adopted conclusions on the situation in Syria that define the EU’s current position: the EU believes in the importance of an inclusive and Syrian-led political process that meets the aspirations of the Syrian people and is in line with the core principles of UN Security Council Resolution 2254. The EU agreed on a gradual lifting of sanctions, conditional on an inclusive transition and the countering of radicalisation. On 24 February 2024, EU sanctions in the energy and transport sectors were suspended, as well as certain banking and financial restrictions.

Between 2017 and 2024, the EU organised eight Brussels conferences entitled ‘Supporting the future of Syria and the region’. In March 2025, a ninth conference was titled ‘Standing with Syria: meeting the needs for a successful transition’, to which a representative from the Syrian transitional government was invited for the first time. During this conference, a joint statement of the EU and Syria was released. In a clear demonstration of continued support, during the conference the EU committed nearly EUR 2.5 billion for 2025 and 2026. The EU also signalled its intention to support holding an event with civil society organisations in Syria later in 2025, in line with the EU’s longstanding support for Syria’s civil society.

Nearly EUR 37 billion has been allocated by the EU and its Member States since 2011 for crisis response in Syria. This includes almost EUR 2.55 billion in EU assistance inside Syria. The EU continues to provide direct support to the Syrian population, both inside Syria and to Syrian refugees in the neighbouring countries, and to host communities, via several instruments: annual special measures under the NDICI – Global Europe funding instrument, the EU Regional Trust Fund in Response to the Syrian Crisis and the EU Facility for Refugees in Türkiye. The EU intends to step up this support, reflecting the new reality in Syria.

J. Tunisia

Following the 2011 Tunisian revolution, the EU provided political, financial and technical support for the country’s democratic transition. The legal basis of the bilateral relationship remains the association agreement, which has been in force since 1998. In 2012, taking account of the progress achieved, the EU and Tunisia agreed to establish a ‘privileged partnership’ with a detailed action plan for 2013-2017. Tunisia and the EU launched a mobility partnership in March 2014, which led to the opening of negotiations on visa facilitation and readmission agreements. Since President Kais Saied granted himself extraordinary powers in July 2021, respect for fundamental rights has significantly deteriorated in Tunisia. The EU continues to support the Tunisian population through its various tools, notably the NDICI ‘Global Europe’ instrument. A Memorandum of Understanding (MoU) was signed between the EU and Tunisia on 16 July 2023, within the framework of the association agreement. The MoU covers five pillars focusing on current challenges: macroeconomic stability, economy and trade, green energy transition, people-to-people contacts, and migration and mobility. Under the first pillar, the budget support programme worth EUR 150 million was adopted in December 2023 to support Tunisia’s macroeconomic stability and was received in March 2024. In its resolution of 14 March 2024 on the adoption of the special measure in favour of Tunisia for 2023, Parliament contested the need for an urgent written procedure for the granting of EUR 150 million in budget support. In this resolution Parliament also deplored the Commission’s lack of prior consultations with Parliament. As part of the comprehensive EU-Tunisia MoU and its third pillar dedicated to the green energy transition, a specific EU-Tunisia MoU was signed on 13 June 2024 to promote and develop investment in renewable energy and ensure strategic energy supply. It will support investment in renewable energy and energy efficiency projects, enhance skills and technological capacities, promote the resilience of renewable energy supply chains, and contribute to maximising the benefits of the ELMED electricity interconnector between Tunisia and Italy. The Commission delayed the adoption procedure of the NDICI 2024 package amounting to EUR 150 million. This amount should be committed in 2025, with an important focus on vulnerable people. The Commission is also preparing its multiannual package for 2025-2027 (with an indicative amount of EUR 450 million), which should be adopted in 2025.

Role of the European Parliament

Parliament is fully involved in the European Neighbourhood Policy. Through its Committee on Foreign Affairs, it monitors the implementation of the ENP, with particular regard to annual progress reports and reviews. The committee follows the political situation in partner countries through regular exchanges of views with high-level government officials, experts and civil society stakeholders. Budgetary powers give Parliament a direct influence on the amounts allocated to the relevant financial instruments. Parliament’s consent is required for the conclusion of all association agreements with southern ENP partners. Parliament must also consent to any new trade agreement.

Regular bilateral relations with the parliaments of southern partner countries are maintained through standing delegations. Relations with the Moroccan Parliament were thus upgraded with the creation of a joint parliamentary committee (JPC) in 2010. JPCs were further established with Tunisia in 2016 and with Algeria in 2018. Parliamentary relations with Syria have been suspended due to the civil war, and the current context in Libya is also preventing inter-parliamentary relations. Parliament has taken part in several EU Election Observation Missions in southern partner countries. At regional level, Parliament participates in the Parliamentary Assembly of the UfM, which holds one plenary session and several committee meetings per year. The Spanish Parliament currently holds the rotating presidency of the Parliamentary Assembly.

 

Camelia Oaida / Agnieszka PIEKARSKA / Lorenzo SATTANINO

04-2025