A new strategic framework for EU foreign and development policy

As of 2015, the EU undertook an update and revision of its foreign and development policy in line with the new global development agenda, geopolitical shifts, emerging crises and a stronger focus on new strategic priorities. This notably led to the adoption of the EU Global Strategy (2016) and the New European Consensus on Development (2017).

1.3.1. The EU Global Strategy for foreign and security policy

In June 2015, the European Council mandated the High Representative of the Union for Foreign Affairs and Security Policy (HRVP) to prepare a global strategy to replace the European Security Strategy of 2003 (European Council 2015). The objective was threefold: to take stock of the evolution of the EU’s global environment, to set out the EU’s core interests and principles for external action, and to provide a vision for a more credible, responsible and responsive EU in the world.

The Global Strategy for the European Union’s Foreign and Security Policy (EEAS 2016) was presented by the HRVP and welcomed by the European Council in June 2016. The Global Strategy emphasises the need to use all strands of foreign policy to address the global threats and seize the opportunities that the new global landscape offers. The main novelty is its integrated nature which extends beyond the traditional security domain to cover all aspects of EU external action, including development cooperation. The Global

11 These were: Poverty eradication, Inequality, Food security and nutrition, Sustainable agriculture, Health, Education, Gender equality and women's empowerment, Water and sanitation, Sustainable energy, Full and productive employment and decent work for all, Sustainable and inclusive growth, Sustainable cities and human settlements, Sustainable consumption and production, Oceans and seas, Biodiversity and forests, Land degradation, including desertification and drought, Human rights, the rule of law, good governance and effective institutions, Peaceful societies.

12 The EU and its member states stressed the importance of: (i) establishing an enabling and conducive policy environment at all levels; (ii) developing capacity to deliver; (iii) mobilising and making effective use of domestic public finance; (iv) mobilising and making effective use of international public finance; (v) mobilising the domestic

Strategy also recognises that a more integrated and effective EU external action calls for a more joined-up approach¹³ and depends on intensifying collaboration with EU member states as well as employing resources and instruments both internally and externally. The Global Strategy explicitly notes that

“development policy also needs to become more flexible and aligned with our strategic priorities” (EEAS 2016). This is a clear sign of the EU’s development policy being more explicitly interest-oriented.

The references to Africa are numerous in the Global Strategy: in addition to stressing the importance of security and support to peace and resilience operations in Africa as “an investment in our own security and prosperity,'' the Global Strategy mentions the need for a renewed political partnership of equals that goes beyond development. It also stresses the need to “build stronger links between our trade, development and security policies in Africa, and blend development efforts with work on migration, health, education, energy and climate, science and technology, notably to improve food security” (EEAS 2016).

1.3.2. The New European Consensus on Development

Following the adoption of the United Nations 2030 Agenda for Sustainable Development in September 2015 (UNGA 2015), the EU began preparations for revising the 2005 European Consensus on Development, which focused on the Millennium Development Goals and was no longer in tune with the global development policy framework. In November 2016, more than one year after the adoption of the 2030 Agenda for Sustainable Development, the Commission put forward a proposal for a New European Consensus on Development (European Commission 2016a) to update and guide the development policy of the EU and its member states until 2030.

Following negotiations between the Commission, Council and Parliament, the New European Consensus on Development (Council of the European Union 2017) was adopted in June 2017. Given the nature of the document and the fact that it needed the approval of all EU member states, the Commission and the Parliament, it is inevitably very broad in scope so as to satisfy all parties.

The Consensus puts forward a balanced and integrated approach to sustainable development by interlinking sectors (such as development, peace, and humanitarian assistance), increasing effectiveness of EU’s development assistance, and combining traditional financing with private sector and domestic resources. It also promotes a comprehensive approach to implementation, drawing on the framework agreed in the Addis Ababa Action Agenda on financing for development,¹⁴ combining aid with other resources (investment, domestic resources mobilisation, trade etc.), and with sound policies. The New Consensus further proposes a strengthened approach to Policy Coherence for Development (PCD) as part of the EU’s contribution to the SDGs and to the broader objective of Policy Coherence for Sustainable Development (Mackie et al 2017).

In addition, the New Consensus includes a restated commitment to a more coordinated EU and member states’ approach to development, promoting development effectiveness, joint programming and joint implementation. It puts emphasis on better-tailored partnerships with a broader range of stakeholders and partner countries.

Poverty eradication remains the primary objective of development policy under the New Consensus, in line with the objective for EU development policy as stated in the EU Treaty. In that sense, the EU policy

13 The Global Strategy stresses in particular the need to work towards a “joined-up external action” based on closer linkages between external and internal policies, inter-agency cooperation, coordination with member states, comprehensive programming, etc.

14 The Addis Ababa Action Agenda is the new global framework to support the implementation of the 2030 Agenda for Sustainable Development. It stresses the importance of aligning all financing flows and policies with economic, social and environmental priorities.

framework adopted in 2015 remains aligned and consistent with the EU Lisbon Treaty objective. Yet, it also stresses the integrated nature of sustainable development and the interlinkages between the SDGs.

Like the Global Strategy, the New Consensus underlines the links between development and other EU policies. It acknowledges in particular the importance of promoting synergies between peace and security, humanitarian aid, migration, the environment and climate. The New Consensus also sets out the principles for EU institutions and EU member states in their cooperation with partner countries towards achieving the 2030 Agenda and the Addis Ababa Action Agenda, agreed by the UN in 2015, and the Paris Agreement on climate change (signed in 2016).

While it recognises the development challenges faced by developing countries in Africa and the importance of targeting Official Development Assistance (ODA) to the continent, the Consensus is global in scope and does not set any specific objective - or foresee any particular approach - for the EU and its member states vis-à-vis Africa. This was a change from the 2005 European Consensus, in which the EU and its member states agreed that at least half of the planned increase in ODA should go to Africa (Council of the European Union 2017).

2. Thematic priorities and approaches to development