AFET

“A Relationship in Crisis: While the EU faces difficulties in asserting influence in Africa, other countries’ impact continues to strive, as seen in projects like the Chinese Belt and Road Initiative. However, African nations remain pivotal for the EU in addressing, amongst others, migration and economic interests. How can the EU fortify and rejuvenate its…

by Júlia Peña Falcón (ES)

Committee on Foreign Affairs

“A Relationship in Crisis: While the EU faces difficulties in asserting influence in Africa, other countries’ impact continues to strive, as seen in projects like the Chinese Belt and Road Initiative. However, African nations remain pivotal for the EU in addressing, amongst others, migration and economic interests. How can the EU fortify and rejuvenate its relationship with the continent?”

Executive Summary

In an era of global interconnectedness, the relationship between the European Union and Africa is crucial, influenced, among others, by historical legacies and contemporary challenges. 

The EU faces the challenge of rising nationalism in its Member States, while engaging with Africa on issues like economic development, security, and climate change. Further challenges include competition with global powers like China, historical injustices, and migration dynamics. Key stakeholders like the European Commission, African Union, and European Investment Bank shape this relationship. 

Measures such as the European Development Fund, EU-Africa Summits, and the European Agenda on Migration are in place to enhance collaboration. Nevertheless, there is still a lot to do in order to strengthen the EU’s relationship with Africa, and promote joint sustainable development, especially since the EU’s influence on the African continent appears to dwindle. 

Introduction and Relevance of the Topic 

In an era where global interconnectedness is indisputable, the relationship between the European Union and Africa is complex and multifaceted, with a history that spans centuries. Today, The EU’s engagement with the continent is more critical than ever as various challenges, ranging from migration, peace and governance, and climate change, become more prominent. Simultaneously, the EU faces internal issues of its own, such as rising nationalism, which halt the development of relations with African countries. The opposition to immigration is a big challenge, which undermines integration by creating tensions and hindering cooperation among nations and citizens, ultimately halting the development of Europe’s relations with Africa. 

It is essential to explore how the EU can strengthen its partnership with Africa and address the challenges that lie ahead. The 21st century is expected to be dominated by the rise of the African continent in the world stage, making it imperative to reevaluate the EU’s role in shaping the future. 

As the world grapples with the consequences of globalisation, the need for collaboration has become urgent. For instance, the combatting climate change cannot succeed without meaningful cooperation with African nations. Similarly, the EU’s commitment to promoting peace and stability across the globe necessitates robust engagement with African partners.

Moreover, regarding economic growth the EU and Africa can mutually benefit from each other through the trade of goods and services, ensuring Europe’s security in its supply chains and improving Africa’s infrastructures. The EU is one of the biggest foreign investors in Africa, which underscores the importance of fostering mutually beneficial trade relationships. Yet, despite these compelling reasons for action, the path forward remains uncertain. The EU-Africa partnership is also influenced by geopolitical dynamics and competition among major international players like the US and China. These factors shape the context within which the EU engages with African nations calling for a nuanced understanding of the external pressures that impact their collaboration.

Image 1: The New Scramble for Africa (Source: African Heritage). 

Fundamental Challenges 

Several fundamental challenges emerge in navigating the complex landscape of EU-Africa relations, that demand careful consideration and strategic solutions.

Competition from China

One of the primary challenges facing the EU is the competition it faces with global powers like China, which is particularly evident on the African continent in initiatives such as the Belt and Road Initiative1. This competition for influence highlights the need for the EU to define its unique role in Africa amidst growing external pressures. According to the Afrobarometer, 59 % of responders believe that China’s economic and political influence in the Continent is positive, compared to 46 % regarding political influence from former European colonial powers.

Self-determination and autonomy

Self-determination and autonomy are also a big concern among African nations, with the Afrobarometer highlighting that 55 % of Africans believe that foreign leaders should allow African governments to make their own decisions on how to make use of their resources, rather than imposing European values and frameworks. Africa has plenty of natural resources (such as minerals), as well as a big potential for renewable energies. Furthermore, historical legacies of colonialism and exploitation continue to influence and shape interactions between the EU and African nations. Overcoming these historical barriers necessitates an approach which acknowledges past injustices, and focuses on building a partnership based on mutual commitments, equality and respect for sovereignty partnership.

Migration

Migration emerges as another critical challenge, with the EU grappling with managing illegal migration flows from Africa  stained political and social dynamics within Member States. Misconceptions surrounding African migration amongst European citizens have led to increased resentment towards migrants, something that can have implications in Member States’ policies. Furthermore, African migration is a phenomenon that is expected to remain dynamic, with an increasing trend over the past two decades that is expected to continue to continue in the next few years. The challenge lies in the need to enhance legal migration pathways between continents, in order to foster improved inter-continental relations. Furthermore, the absence of robust cultural and knowledge exchange  presents an obstacle to fortifying not just diplomatic but social bonds among inhabitants, as well as a more inclusive and welcoming society.

Key Stakeholders

  • European Commission: The European Commission plays a crucial role in shaping the EU’s external relations policies, and it has power to propose legislation, negotiate trade agreements and allocate funding for development projects. To fortify its relationship with Africa, the European Commission can focus on enhancing development aid, promoting sustainable investments, and fostering dialogue on shared challenges like migration.
  • European External Action Service (EEAS): The EEAS is the diplomatic arm of the EU, responsible for implementing the EU’s foreign and security policies and representing the EU in international forums, including engagements with African partners. 
  • Member States: Each Member State has its own national interest and historical ties with African countries, which influence their approach to diplomacy and cooperation  with the continent. They can engage in bilateral cooperation, development assistance and security partnerships with Africa. They play a significant role in shaping the EU’s foreign policy, together with adapting their national policies to support joint initiatives and coordinated sustainable  development.
  • African Union (AU): The AU is an international organisation representing African nations collectively and shaping continental policies. It has competences in peace and security, together with economic integration and development cooperation across the continent. The AU’s interests include promoting African unity, addressing common challenges like migration, and enhancing cooperation with external partners like the EU.
  • African States: African States naturally play a pivotal role in shaping EU-Africa relations. The capacity and willingness of these independent States to cooperate will largely determine the AU’s future. Currently, the Sub-Saharian Africa region is facing serious challenges, most notably civil wars (in States like the Central African Republic, Somalia and South Sudan). Northern Africa, in contrast, is mostly being challenged by repressive governments and struggling economies (for instance, countries like Egypt, Libya and Tunisia). Each State has its own national interest and acts independently accordingly to it.
  • European Investment Bank (EIB): The European Investment Bank is the lending institution of the EU that provides financing for projects within the EU and beyond. The EIB supports infrastructure development, private sector investments, and sustainable development initiatives in African countries. Its interests include promoting economic growth, job creation, climate action projects, and fostering sustainable investments.

Measures in Place 

The topic of EU-Africa relations falls under the framework of the Common Foreign and Security Policy and the European Neighbourhood Policy. The EU has the authority to negotiate agreements, provide development assistance, and coordinate its foreign policy towards Africa through various institutions and mechanisms. Prominent current legislative frameworks and initiatives are:

European Development Fund (EDF): 

The EDF is the EU’s main tool for financing development aid abroad. It is the main source of European funding for countries under the Cotonou agreement2. After its expiration, the Samoa agreement was signed in November 2023, which lays down its key common principles and covers the following six priority areas: democracy and human rights, sustainable economic growth and development, climate change, human and social development, peace and security, and migration and mobility. The EDF is in charge of financing any project or programme that contributes to development in African, Caribbean or Pacific countries, through grants, loans and investment.  

EU-Africa Summits: 

Regular summits between the EU and African Union provide a platform for high-level dialogue on issues of mutual interest, including trade, security, migration, and sustainable development.
In the 2007 Lisbon Summit, the Africa-EU Joint Strategy (JAES) and Action Plan were adopted. The JAES reflected the wider integration processes in both regions, as well as geopolitical changes occurring in the international sphere. This partnership is one of the most productive, and has produced concrete outcomes in the areas of peace and security, migration, climate change, and regional integration.
However, these results have been somewhat limited given the difficulty to effectuate high-level dialogue between the EU and AU, especially in matters such as migration and global governance. One of the biggest drawbacks from this strategy was the inability to establish a ​​Joint Annual Forum3 between the two international organisations.
Nevertheless, summits between the two institutions have been ongoing since 2007, with the sixth EU-AU summit taking place in 2022. During its course, African and European leaders set forth an Africa-Europe Investment package of €150 billion, which will support the common goal of the 2030 and the 2063 AU Agenda. This investment package will support the building of more resilient and sustainable economies. Its main aims include energy and digital transition, job creation, transport facilitation and improving health and education.

European Agenda on Migration: 

The EU has adopted a comprehensive approach to migration management, including initiatives such as the Migration Partnership Framework with African countries to address root causes of illegal migration and enhance cooperation on border control and return policies. Within this agenda, the European Commission launched the “Emergency Trust Fund” for stability and addressing root causes for illegal migration and displaced persons in Africa”, made up of €1.8 billion. Its aim is to support the fostering of stability and contribute to better management of migration, through addressing root issues that prompt migration by promoting economic and equal opportunities, security and development.

Global Gateway Initiative (GGI):

The GGI is a EU strategic effort to invest in infrastructure development and improve the connectivity between Europe and the rest of the world. It aims to boost smart, clean and secure connections in the digital, energy and transport sectors, as well as to strengthen health, education and research globally. Contrary to China’s Belt and Road Initiative, the GGI holds sustainability as a key element in the development of infrastructure. The GGI prominently charts the path forward for a stronger EU-Africa partnership. The GGI plans to mobilise up to €300 billion by 2027, in order to reach EU’s commitment to narrowing the global infrastructure gap, supporting sustainable projects and complying with the UN 2030 Agenda. 

Historical context 

When examining the EU’s relationship with Africa, historical context is crucial. The EU’s colonial past in Africa has a direct influence on today’s dynamics, as colonial legacies impact economic ties, migration policies and power struggles. Formal colonies continue to struggle with poverty, conflict and underdevelopment, which ultimately places these regions in disadvantage when engaging in international relations. Colonialism did not allow for industrialisation in Africa, since the continent’s role was limited to the production of primary materials. Furthermore, colonial powers created vicious cycles of violence, authoritarianism and poverty through the exploitation of resources of the African continent, which can still be perceived today. 

The challenge for European-African relations is to evolve beyond a sense of pity and remorse, and to acquire a profound understanding of Africa’s equal role in international affairs to prevent neocolonialism. Reflecting on historical missteps like colonialism can guide the EU to engage in more collaborative and respectful interactions. 

School of Thoughts 

There are different theories in the International Relations (IR) doctrine that help us understand why states collaborate or do not collaborate with each other by offering us specific world views through different lenses. When analysing how international cooperation can be enhanced, it is interesting to keep these different approaches in mind, as they can help us better understand the different perspectives of what drives international relations and why states behave the way they do. Such include, among others:

Liberalism: Liberalism is often referred to as an ‘utopian’ theory, as it proposes the view that humans are intrinsically good and believe peace and harmony between nations is achievable and desirable. They believe states can work together to maximise the common interest and benefit, and that international cooperation through institutions is effective to foster common peace and security. Thus, this perspective would highlight cooperation leading to mutual benefit for the EU and Africa when addressing challenges such as migration and economic development.

Realism: Realists view states as the primary actor in international affairs, over international organisations. They argue that states are mostly concerned with their own security, power and national interests. Therefore, from a realist perspective, international cooperation exists to the extent that states put their own concerns and interests first, since this theory perceives nations to exist in competition with one another, rather than collaboration. 

Postcolonialism: Postcolonialism focuses on the inequality between nations or regions, as opposed to classes. The effects of colonialism are still present in many regions of the world, and many populations continue to struggle with challenges left behind by formal colonial powers. Postcolonialism examines how governments in former colonies experience international relations, and highlights how Western power marginalises the non-Western world. This theory foregrounds power dynamics and historical context that underlie  interactions between former colonised and colonising countries. 

Outlook 

As we ponder the future of EU-Africa relations, a multitude of questions arise. In order to strengthen the ties between Africa and the EU, we must consider how to face and address the competition from global powers like China, that are increasingly engaging with Africa? What strategies can be employed to build trust with African nations and overcome historical legacies of colonialism and exploitation, in order to enhance relations between the continents? Is expanding legal migration pathways between continents a viable approach for improving inter-continental relations? When it comes to the citizens of both continents, would fostering cultural and knowledge exchange improve social ties? What methods could be implemented to enhance the connection between citizens in the continents? Furthermore, balancing national interests with supporting joint initiatives and sustainable development in Africa poses a challenge; how can the EU navigate this effectively? And finally, navigating power dynamics to foster a more balanced relationship with African nations, while avoiding neocolonialism, requires strategic thinking. What approaches should the EU consider to cultivate a harmonious partnership?

Links for Further Research 

  1.   Belt and Road Initiative:  Infrastructure project foreseeing great Chinese foreign investments, aiming  to develop two new trade routes connecting China with the rest of the world, as well as to expand the nation’s economic and political power. ↩︎
  2.  The Cotonou Agreement (valid until 2023) was a treaty that, through the EDF, aimed to reduce and eventually eradicate poverty and contribute to the gradual integration of the African, Caribbean and Pacific (ACP) countries into the world economy. It was based on three pillars of cooperation: development, economy and politics, and three main areas of activity: development, migration and trade. ↩︎
  3. A Joint Annual Forum has still not been implemented due to divergent ideas between the AU and the EU on how it should be carried out, but its aims to establish yearly meetings between the EU and the AU to assess the progress made in accordance to the implementation of the JAES. ↩︎