(*) Key achievements in the table state which period they relate to. Some come from the implementation of the predecessor programmes under the 2014-2020 multiannual financial framework. This is expected and is due to the multiannual life cycle of EU programmes and the projects they finance, where results often follow only after completion of the programmes.
(*) 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.
Budget for 2021-2027
[notranslate]CFSPWeb:budg_01:pie[/notranslate]
Rationale and design of the programme
The common foreign and security policy (CFSP) contributes to the EU’s objectives of preserving peace, strengthening international security, promoting international cooperation and developing and consolidating democracy, the rule of law and respect for human rights and fundamental freedoms.
The EU faces several ongoing challenges in international security and stability. Key ones include organised crime, terrorism, people smuggling, irregular migration, the proliferation of conventional weapons and weapons of mass destruction, and security threats stemming from weak rule of law in some non-EU countries.
It is therefore essential for the EU to support non-EU countries in their related reforms, such as security sector reform and help them establish efficient civilian security services, thereby increasing their capacities to tackle internal and external security challenges.
Article 21 of the Treaty on European Union defines the common overarching principles and objectives of the EU’s external action, which are namely to ‘preserve peace, prevent conflicts and strengthen international security’. While the individual activities of Member States clearly contribute to achieving the goals of the EU’s CFSP, the combined political weight of the EU as a whole helps to provide a critical mass to respond to global challenges. Regarding non-proliferation and disarmament activities, the EU’s support provides significant benefits for the universalisation and effective implementation of international treaties, conventions and agreements addressing the proliferation of both conventional arms and weapons of mass destruction, including their delivery mechanisms.
The CFSP actions aim to ensure the EU’s ability to act and intervene to address civilian crises and to promote nuclear non-proliferation and disarmament through support for multilateral action. Interventions in both areas help the EU ‘preserve peace, prevent conflict and strengthen international security’, as envisaged under Article 21 of the Treaty on European Union.
The CFSP pursues two specific objectives:
- to promote international cooperation in the field of security sector reform, to develop and consolidate democracy and rule of law, and promote human rights and fundamental freedoms;
- to promote strategic cooperation with international partners on the non-proliferation of weapons of mass destruction and on combating the illicit accumulation of small arms and light weapons and other conventional weapons, and to support the EU policy on conventional arms exports.
The CFSP pursues its objectives by the following means.
- Various types of civilian common security and defence policy (CSDP) missions, depending on the Council of the European Union’s mandate, for example advisory missions counselling host countries on drafting legislation in the security sector, or capacity-building missions providing hands-on operational activities.
- Various types of mandates of EU special representatives promoting EU policies all around the world.
Actions related to non-proliferation and disarmament. These are implemented through agreements with international organisations, notably within the United Nations family, and for specific purposes with other select organisations in the field of non-proliferation and disarmament.
The CFSP is implemented primarily through indirect management for civilian CSDP missions and non-proliferation and disarmament actions, and to a lesser extent through direct management. The political direction of these actions is under the Political and Security Committee (PSC) and the High Representative of the Union for Foreign Affairs and Security Policy. The mandates of the civilian CSDP missions are agreed by the EU Member States. The lead service for the programming of CFSP actions is the European External Action Service, while the Commission is responsible for ensuring the sound financial management of the funds.
The CFSP is implemented on the basis of individual decisions adopted by the Council. Under Articles 42(4) and 43(2) of the Treaty on European Union, the Council adopts the legal framework for civilian CSDP missions. On the basis of Article 28 of the treaty, Member States may decide to launch operational actions, for example stabilisation actions. As regards actions in the field of non-proliferation and disarmament, the Council adopts decisions on the basis of Articles 28(1) and 31(1) of the treaty.
The main share of funds is allocated to the budget lines in support of civilian CSDP missions to assist partner countries in border management, conflict prevention, combating organised crime and smuggling, reforming national security sectors or monitoring the judicial system and the rule of law. Missions provide advice and training to local security sector actors and implement small-scale projects.
The European Union special representatives are independent CFSP entities that support the work of the High Representative in key regions and countries. They are appointed by the Council and entrusted with a mandate in relation to a particular policy issue.
CFSP-funded non-proliferation and disarmament actions contribute to the universalisation and implementation of international treaties and conventions addressing the proliferation of weapons of mass destruction, support measures to control the spreading of small arms and light weapons and promote effective arms export controls around the world. Actions are implemented through partner organisations, in particular from the United Nations, and for specific purposes with other select organisations in the field of non-proliferation and disarmament.
Under the 2021-2027 multiannual financial framework, the CFSP remains a separate tool, but complementary with other conflict and crisis response instruments, for example the rapid response pillar of the Neighbourhood, Development and International Cooperation Instrument. It is expected to provide continued strong support for the non-proliferation of weapons of mass destruction and disarmament, with increased levels of support to match Member States’ ambitions.
Programme website:
Impact assessment.
- Reports on the implementation of the CFSP are produced annually by the European External Action Service. Further information is available in the CFSP annual reports.
Relevant regulation.
- Tasks result from the European Commission’s prerogatives at institutional level, as provided for in Article 58(2) of Regulation (EU, Euratom) 2018/1046 of the European Parliament and of the Council of 18 July 2018 on the financial rules applicable to the general budget of the Union.
The CFSP is implemented based on individual decisions adopted by the Council.
Under Articles 42(4) and 43(2) of the Treaty on European Union, the Council adopts the legal framework for civilian CSDP missions.
Based on Article 28 of the treaty, Member States may decide to launch operational actions, for example stabilisation actions.
As regards actions in the field of non-proliferation and disarmament, the Council adopts decisions based on Articles 28(1) and 31(1) of the treaty.
Budget
Budget programming (million EUR):
[notranslate]CFSPWeb:budg_02:table[/notranslate]
Financial programming:
+ EUR 3.8 million (+ 0%)
compared to the legal basis*
(*) Top-ups pursuant to Article 5 of the multiannual financial framework regulation are excluded from financial programming in this comparison.
Budget performance – implementation
Voted budget implementation (million EUR) (1):
[notranslate]CFSPWeb:budg_04:table[/notranslate]
- CFSP actions funded under the 2014-2020 multiannual financial framework are still being implemented, and there continues to be a strong and direct link between the CFSP actions implemented under the 2014-2020 multiannual financial framework and the 2021-2027 multiannual financial framework.
- In 2021, 2022 and 2023, the Service for Foreign Policy Instruments committed and paid 100% of the voted appropriations to cover CFSP entities mainly operating through indirect management, as identified by Member States in the corresponding Council decisions.
- One of the main challenges is the structural oversubscription of the CFSP budget. Political ambitions from EU Member States in the Council are not aligned anymore with the available resources. Five new civilian CSDP missions have been established in Iraq, the Central African Republic, Armenia, Moldova and the Gulf of Guinea since 2017, including three in 2023, while only one mission (in Afghanistan) was closed during this period. The Commission has launched, together with the European External Action Service, a process to introduce some structural measures to generate savings and render the budget sustainable again. However, missions continue to struggle with the full implementation of their originally requested budgets. The Commission has therefore inter alia started to strictly implement a policy to allocate budgets based on past absorption rates.
- For 2024, the projected costs related to civilian CSDP missions, European Union special representatives and non-proliferation and disarmament actions already exceed the available commitment and payment credits. The High Representative submitted a proposal for a Council Decision on the EU Diplomatic Academy in 2023 and may submit a proposal for a new EU Special Representative for the Great Lakes in 2024.
- For 2025, the renewal of ongoing civilian CSDP missions, EU special representatives and non-proliferation and disarmament actions is projected to consume/exceed the requested commitment and payment appropriations. The Commission will continue to propose/implement mitigating measures to try and create some margin for new actions / urgent situations.
Contribution to horizontal priorities
Green budgeting
CFSP actions and CSDP entities are not designed to tackle the green priorities, as is the case with action documents under cooperation instruments.
Some entities have internal procedures favouring green procurement. However, as operations mainly focus on providing advice and developing capacities in the civilian security sector, their impact on the abovementioned horizontal issues remains very limited.
Contribution to green budgeting priorities (million EUR):
[notranslate]CFSPWeb:budg_05:table[/notranslate]
Gender
Contribution to gender equality (million EUR) (*):
[notranslate]CFSPWeb:budg_06:table[/notranslate]
| Gender disaggregated information: |
|---|
| N/A |
- The European External Action Service assessed that all civilian CSDP missions, except the newly established EU Partnership Mission in Moldova and the Gulf of Guinea initiative, have gender equality as an important objective (Development Assistance Committee gender equality marker 1 (1). This assessment is based on several elements. First, the missions have full-time gender advisers and gender focal point networks. In addition, the missions implement guidelines on gender mainstreaming. The missions also collect sex-disaggregated data, provide training courses on gender mainstreaming and on women, peace and security, and conduct operational activities to advance gender equality and/or the implementation of the women, peace and security agenda. Finally, the European External Action Service and the Member States are committed to enhancing the share of female staff in the missions. The 2023 civilian CSDP compact sets a target of 40% women among international mission staff by the end of 2027. The selection procedures prioritise women over men.
As mentioned above, 100% of the assessed civilian missions have gender equality as an important objective (Development Assistance Committee gender targets score 1), which represents the following paid amounts:
- 2021: score 1: EUR 341.9 million (2),
- 2022: score 1: EUR 348.7 million,
- 2023: score 1: EUR 314.1 million.
(1) The OECD tracks and analyses development financing in support of gender equality and women’s rights using the Development Assistance Committee gender equality policy marker.
(2) As per European External Action Service note Ares(2023)6824349 of 9 October 2023, all civilian missions, except EU Partnership Mission in Moldova and the Gulf of Guinea initiative, are assessed as having Development Assistance Committee gender marker 1 from 2021.
Digital
Contribution to digital transition (million EUR):
[notranslate]CFSPWeb:budg_07:table[/notranslate]
The objective of the programme is to promote international cooperation in security sector reform, democracy building and human rights protection, while also fostering strategic partnerships to address weapons non-proliferation and combat illicit arms accumulation. The programme therefore does not contribute to the digital horizontal priority.
Budget performance – outcomes
[notranslate]CFSPWeb:budg_09:progress[/notranslate]
[notranslate]CFSPWeb:budg_09:table[/notranslate]
Link to file with complete set of EU core performance indicators
- The EU has significantly enhanced its operational capacity and footprint in recent years thanks to the key contributions to global peace and security of the 14 civilian CSDP missions and operations within the framework of the EU’s integrated approach to external conflicts and crises. This improves the security of the EU and its citizens.
- The European Commission provided the necessary funds in a timely manner through contribution agreements, which ensured the missions’ operational capacity. The funds allowed the recruitment and training of staff by the missions and the provision of the logistical support to carry out the operations. Nevertheless, civilian missions operating in sometimes insecure environments are facing continuous difficulties in recruiting the required number of staff with the necessary skills to carry out the relevant job functions.
- In 2023, the Commission continued to support efforts to curb the proliferation of weapons of mass destruction and the illicit accumulation and trafficking of small arms, light weapons and other conventional weapons by implementing 31 non-proliferation and disarmament actions.
- In general terms, despite delays due to the COVID-19 pandemic, the actions launched during the previous multiannual financial framework are performing well when measured against the indicators in the logical frameworks.
- The actions effectively supported the implementation of various non-proliferation treaties, conventions and other instruments or programmes by non-EU countries. This was achieved by strengthening the capacities of their relevant national authorities through training courses, workshops, study visits and other activities and by providing legal assistance, infrastructure investment and equipment. They also effectively supported the documentation and tracing of diverted or trafficked conventional arms and their ammunition, the disposal of surplus or confiscated small arms and light weapons and investigations into the alleged use of chemical weapons, along with outreach activities to support the universalisation of the various non-proliferation treaties, conventions and instruments.
- The EU’s support for the non-proliferation multilateral architecture plays a key role in efforts to defend the international rules-based order, which is being undermined following Russia’s war of aggression against Ukraine.
- With regard to the indicator ‘Percentage of contribution agreements with EU special representatives and civilian CSDP missions signed within 4 weeks after the adoption of the Council decision’, the Commission concluded 13 out of 15 agreements (i.e. 86.7%) within the deadline in 2023. The signature of the contribution agreement with the EU security and defence initiative in support of West African countries of the Gulf of Guinea was delayed, as the Political and Security Committee appointed the head of the Civilian Command and Support Cell of the initiative more than 2 months after the adoption of the Council decision establishing the initiative.
- For the indicator on pillar assessments, it should be noted that 10 out of the 14 civilian CSDP missions were exempted from the pillar assessment requirements in October 2023, in accordance with Article 154(6)(a) of the financial regulation. The EU Advisory Mission in the Central African Republic was positively pillar assessed in October 2023. The newly established EU Mission in Armenia and the EU Partnership Mission in Moldova are to be pillar assessed in 2024. None of the positively pillar assessed civilian CSDP missions require any supervisory measures, and the result for this indicator is therefore 100%.
- Being able to deliver with the CFSP budget will largely depend on enhanced alignment between the political ambitions and the available resources, creating more budgetary space and thus the necessary flexibility to address new and upcoming emergencies and priorities.
Sustainable development goals
Contribution to the sustainable development goals
| SDG | Example |
|---|---|
| SDG5 Achieve gender equality and empower all women and girls | As mentioned above, all civilian CSDP Missions, except the newly established EUPM Moldova and the Gulf of Guinea Initiative, are assessed as having gender equality as an important objective (Development Assistance Committee gender equality marker 1). This assessment is based on the fact that the Missions have full time gender advisers and a gender focal point networks, implement guidelines on gender mainstreaming, implement the strategy and action plan to enhance women’s participation in civilian CSDP missions, collect sex-disaggregated data, provide trainings on gender mainstreaming and women, peace and security, and conduct operational activities to advance gender equality and/or implementation of the women, peace and security agenda. |
| SDG16 Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels | Civilian CSDP mission in Armenia supporting the reduction of violence Through the conduct of routine patrolling and reporting on the situation on the ground and on any conflict related incidents, the newly established EU mission in Armenia contributes to confidence-building between Armenia and Azerbaijan. As an impartial and credible actor, the mission contributes to the creation of a safe and stable environment in conflict-affected areas in Armenia, within which improved human security and the normalisation of relations between Armenia and Azerbaijan on the ground will allow for further progress towards a potential peace agreement. In 2023, the Commission committed EUR 16.6 million for the mission. Arms export control and non-proliferation The iTrace IV action contributed to the prevention of diversion and illicit trafficking of conventional arms and their ammunition by documenting and tracing those arms and ammunition. In 2020-2023, the iTrace IV action documented 3 885 conventional weapons and 95 308 rounds of ammunition in conflict-affected areas, including Afghanistan, Northeast Syria, Somalia, and the Sahel region. The iTrace IV action also sent 2 488 trace requests to national authorities of the arms exporting states and received 891 responses. The maximum EU contribution for the iTrace IV action was EUR 5.5 million. |