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The European Parliament in EU external action
The European Parliament in EU external action
Elena Lazarou and Gabija Leclerc with Panagiotis Politis Lamprou, Members' Research Service
Summary
Based on its Treaties, the European Union (EU) has developed a multifaceted external action policy, and is seen as an important actor far beyond its borders. Through its institutions and Member States, the EU is active in international trade, humanitarian assistance, economic, financial, and technical and development cooperation, as well as through its common foreign and security policy (CFSP) and common security and defence policy (CSDP). Increasingly, the external dimension of internal EU policies has also grown, notably in the economic, climate, energy, migration and digital fields.
The role of the European Parliament in the EU's external action has increased significantly since the 1990s, and especially after the entry into force of the Treaty of Lisbon (2009). Although Parliament's powers remain relatively limited compared to other EU institutions involved in external action, especially with regard to CFSP and CSDP decision-making (which remain mostly intergovernmental), it nevertheless has considerable legislative, budgetary, agenda-setting and soft powers.
Several of Parliament's powers cut across all policy areas. Notably, it proactively supports multilateralism and conducts extensive parliamentary diplomacy. Parliament contributes to policy framing through its debates, resolutions, recommendations, own-initiative reports and statements. It holds hearings, workshops, debates and organises missions. Members of the Parliament exercise scrutiny of the executive, by holding hearings of and posing questions to the European Commission, the European External Action Service (EEAS), the EU's High Representative and the Council. Parliament co-legislates on financing the EU's external action and controls EU institutions' expenditure, including the EEAS, through the discharge procedure. The Parliament acts on an equal footing with the Council when adopting numerous acts in the fields of trade, development and humanitarian aid, and often external dimensions of internal policies. Since 2009, Parliament's consent to legally binding international agreements is mandated by the Treaties.
Introduction to EU external action
The Treaty on the European Union (TEU) and the Treaty on the Functioning of the European Union (TFEU) outline the bases for the EU's relations with the world and grant it legal personality, thus reinforcing its role as a global actor. From international trade, humanitarian assistance, economic, financial, and technical and development cooperation, and the external dimension of numerous internal policies – to the EU's common foreign and security policy (CFSP) and common security and defence policy (CSDP), the EU and its Member States engage in a vast array of external policies. The decision-making apparatus in the EU's external policies is complex, with powers divided differently among actors under the Treaties. Decisions on the CFSP and CSDP are mainly intergovernmental, and heavily dominated by the Member States through the Council and the European Council. Other areas enjoy a more supranational character, where the Commission proposes measures for the Council and the European Parliament to decide upon, albeit not always on an equal footing. However, decision-making is only one of the ways through which the EU exercises its external action; the Parliament equally makes use of its Treaty-vested powers and soft-power influence.
Main actors
The European Council, composed of Member States' Head of State or Government, defines the political and strategic direction and discusses high-level foreign policy issues (Article 22 TEU). Its President represents the EU when the CFSP is concerned. The Council of the EU, comprising Member State ministers, adopts decisions and shapes areas closely linked to state sovereignty (Article 16 TEU), such as defence.
The European Commission manages and implements the EU's external action by formulating and implementing policies including trade, development and humanitarian aid, and a wide variety of external dimension of internal policies (e.g. climate, migration), and by negotiating agreements with third countries or organisations (Article 17 TEU).
The High Representative of the Union for Foreign Affairs & Security Policy/Vice-President of the European Commission (HR/VP) ensures EU external action is consistent (Article 18 TEU) and is the head of the European External Action Service (EEAS) and the European Defence Agency. The EEAS acts as the Union's diplomatic service, representing the EU in third countries and international organisations through a network of EU delegations.
The European Parliament's role in the EU's external action has significantly increased since the 1990s, particularly since the Treaty of Lisbon (2009). Although the Parliament remains rather 'underprivileged' compared to other EU actors, it nevertheless employs a strong toolbox of powers. Through decision-making, budgetary, scrutiny and oversight powers, policy framing, parliamentary diplomacy and the right to be informed, the Parliament has asserted itself as an important actor in EU external policies.
The European Economic and Social Committee (EESC) and the European Committee of the Regions can also influence the policy-shaping process; in certain cases, the EU institutions are required to consult them. Finally, national parliaments monitor and scrutinise their government's positions at the EU level.
European Parliament role in EU external action
Following the entry into force of the Lisbon Treaty in 2009, the European Parliament became a stronger actor in the EU's external action. It contributes to its development through decision-making, framing of policies (policy-making), budgetary power, parliamentary diplomacy, legislative initiatives, getting informed, reporting, oversight and scrutiny.
The EU Treaties and the Parliament's Rules of Procedure provide for the practical implementation of these powers; however, some experts argue that several of the Treaties' external action provisions remain underused. In 2024, the European Parliament reformed its Rules of Procedure to strengthen internal working methods, the institutional role and its capacity to act; external relations were one of the five focus areas of this reform. In carrying out its role in external policies, the Parliament engages with other EU institutions and national parliaments. Relations between the HR/VP and the European Parliament are bound by the 2010 Declaration on Political Accountability, annexed to Council Decision 27/2010 establishing the EEAS.
Parliament's Committees
Parliament's key external action-oriented committees are the Committee on Foreign Affairs (AFET) and its Subcommittee on Human Rights (DROI), and the committees on Security and Defence (SEDE), on Development (DEVE), and on International Trade (INTA). However, other committees, such as those on Environment, Public Health and Food Safety (ENVI), on Industry, Research and Energy (ITRE), on Civil Liberties, Justice and Home Affairs (LIBE) and the Committee on Women Rights and Equality (FEMM), and others, increasingly contribute to shaping the EU's external action as external dimensions of internal policies shape the EU's global engagement with other actors (for example on industrial policy, energy and climate policy).
Parliament's role and influence varies across different areas of EU external policy (see below); however, several of its powers cut across all policy areas. First, Parliament conducts parliamentary diplomacy in all external action areas, including the external dimensions of internal policies; it liaises with its counterpart legislators and a plethora of other governmental and non-governmental actors worldwide. Then, through its debates, resolutions, recommendations, own-initiative reports and statements, Parliament contributes to policy framing. It also holds hearings, workshops and exchanges of views (at the plenary, committee, delegation or political group levels), which contribute not only to the policy framing, but also keep the Parliament informed. Through Parliament's missions, including fact-finding missions, it provides reports and information on situations in third countries, including in the context of electoral observation.
Members of the Parliament also enjoy the right to question the Commission, the Council or the HR/VP, both orally and in writing, as well as the right to receive the answer to their question. The Parliament often invites Commission, EEAS and the Council representatives to its plenary sessions or committee meetings, including for Question Time. This enables Members to get informed and oversee the actions of the other bodies. Parliament scrutinises each new Commission by organising hearings of the Commissioners-Designate, including the HR/VP (during which Members typically try to obtain certain guarantees and promises from the incoming Commissioners), approving the designees individually and greenlighting the Commission as a whole.
As one of the two arms of the EU's budgetary authority, Parliament influences EU external action by approving the EU's budget under the multiannual financial framework (MFF). It amends and endorses the annual budget and control the expenditure of each institution, including EEAS, via the discharge procedure. The power of discharge enables the Parliament to exercise political scrutiny and exert pressure over other EU institutions and agencies. The Parliament scrutinises the Commission's and the Council's implementing acts (Article 291 TFEU; Rule 115, Rules of Procedure) and may object to Commission delegated acts (Article 290 TFEU; Rule 114, Rules of Procedure). Its decision-making role (co-decision under the ordinary legislative procedure, consultation or consent), is however, more prominent in areas other than CFSP and CSDP. This, even though several policy-making areas have seen a significant shift towards a more frequent use of legislative acts, on issues that address external dimensions of internal EU policies (e.g. environmental policy). Finally, under Article 225 TFEU and Rule 47 of the Rules of Procedure, Parliament may request the Commission to submit a proposal deemed as required to implement the Treaties.
Role in common foreign and security policy
Due to the intergovernmental nature of CFSP, the Parliament is not directly involved in the decision-making process. Nonetheless, under Article 36 TEU, the HR/VP is required to regularly consult the Parliament on the 'main aspects and the basic choices' of the CFSP, to 'inform it of how those policies evolve', and to take Parliament's views into consideration. In addition, the Parliament has important budgetary, oversight and policy-framing roles. As the budgetary authority, it influences the EU's foreign policy (approval of the EU budget under the MFF (Article 312 TFEU), amending and endorsing the annual budget (Article 310 TFEU), and controlling the expenditure of each institution, including EEAS, via the discharge procedure (Article 319 TFEU)). However, the Parliament is not formally consulted before the adoption of individual CFSP decisions with budgetary implications.
Parliament's diplomacy includes election observation, outreach and engagement through a plethora of forums, conflict mediation, parliamentary capacity building, human rights and democracy promotion and various programmes (see below). Finally, through debates, hearings and exchanges in the plenary, committees and delegations, the Parliament exercises democratic oversight and contributes to raising public awareness and spurring discussion in the EU and in the countries concerned. Its resolutions and recommendations shape the foreign policy debate within the EU, contribute to normative developments worldwide, and are closely scrutinised in non-EU countries.
Parliamentary diplomacy and engagement
The European Parliament's diplomatic activity is multifaceted and contributes to the achievement of EU objectives: promoting EU values, interests and policies; enhancing the visibility and effectiveness of EU foreign policy; and promoting coherent action. As a recent study highlights, such parliamentary diplomacy can function as a diplomatic bridge when political alignment is reduced at other levels, as was the case during Donald Trump's first term as President of the United States.
Parliament's 48 permanent delegations - official bodies of groups of Members - contribute to Parliament's diplomatic role by liaising, exchanging information and nurturing closer relations with the parliaments of third countries, regions and regional/international organisations. They organise regular inter-parliamentary meetings with parliamentarians from the countries/regions on which they focus. Eight delegations participate in multilateral parliamentary assemblies. These regular, formal meetings gather members from the European Parliament and several other parliaments. They include delegations to the Organisation of African, Caribbean, and Pacific States (OACPS)-EU, Euronest,1 Union for the Mediterranean and North Atlantic Treaty Organization (NATO) parliamentary assemblies. Almost a third of the Parliament's delegations are to inter-parliamentary committees. These are created by bilateral agreement between the EU and the partner country or region (e.g. the delegations to the EU-Ukraine Parliamentary Association Committee or to the Economic Area (EEA) Joint Parliamentary Committee).
In addition to its liaison offices (EPLOs) in London and Washington, the Parliament has representative offices to the United Nations in New York, to the African Union in Addis Ababa, and to the Association of Southeast Asian Nations in Jakarta; aiming to strengthen parliamentary cooperation with these multilateral organisations. The Parliament approved the opening of its office in Kyiv, Ukraine (2023), Panama City for Latin America and the Caribbean (2024), and Chișinău, Moldova and Tirana, Albania to further strengthen Parliament's engagement with the Eastern Partnership region and Western Balkans respectively (2025).
Global democracy support
The Parliament promotes the EU values of democracy, freedom, equality, rule of law and human rights worldwide. Its Democracy Support and Election Coordination Group (DEG) facilitates the coordination of activities including election observation and follow-up, support for parliaments in third countries, human rights promotion and support for dialogue and mediation. This group is composed of Members appointed by the political groups, the chair of the Conference of Delegation Chairs (Andreas Schwab, EPP, Germany), the chair of the Committee on Human Rights (DROI – Mounir Satouri, Greens/EFA, France) and Parliament's vice-presidents responsible for human rights, rule of law and democracy support (Sophie Wilmès (Renew, Belgium) and Nicolae Ştefănuță (Greens/EFA, Romania)). Co-chaired by the chairs of the committees on Foreign Affairs (AFET – David McAllister, EPP, Germany) and Development (DEVE – Barry Andrews, Renew, Ireland), the DEG provides political guidance and supervision. It also creates a list of 'priority countries or regions', in the Eastern Neighbourhood (Ukraine, Moldova and Armenia), Western Balkans and the Pan-African Parliament.
Ensuring fairer elections
The Parliament is a respected election observer, supporting the entire electoral cycle, beginning with the pre-election period and continuing after the vote. The HR/VP consults the DEG officially on the selection of priority countries for long-term EU election observation missions. These are either (i) the international election observation missions (IEOMs) led by the Office for Democratic Institutions and Human Rights (ODIHR) in countries that are members of the Organization for Security and Co-operation (OSCE) – but not EU Member States; or (ii) EU election observation missions (EOMs) in countries that are neither OSCE or EU countries. Each EOM is headed by a Member, appointed as chief observer by the HR/VP, based on a DEG recommendation.
Each year, the Parliament sends up to a dozen short-term election observation delegations to countries outside the EU, reinforcing the longer-term missions (IEOMs or EOMs). Since 1984, Parliament has observed over 200 elections in more than 75 countries. In 2024, its delegations strengthened missions in Bosnia and Herzegovina, Georgia, Jordan, Mongolia, Moldova, Mozambique, North Macedonia and Senegal. Each EOM or IEOM produces a report assessing the electoral process and making recommendations. In EOMs, the chief observer is in charge of the preliminary statement and of the final report.
To reinforce a country's capacity to conduct free and fair elections, the Parliament also conducts autonomous activities throughout the electoral cycle. These include pre- and post-election dialogues with parliamentarians, other political actors and stakeholders. Parliament also provides assistance to parliaments to implement the recommendations of the election observation mission and modify the relevant legislation.
Strengthening parliaments in non-EU countries
The European Parliament provides technical and capacity-building assistance for parliaments in third countries to strengthen their capacity and support democracy in the world. This activity follows DEG priorities, taking account of Parliament's resolutions and EU EOM recommendations. The assistance involves parliamentarians and staff from both the European Parliament and partner countries' parliaments. Parliament is highly autonomous in organising such action, relying on EU delegations or the EEAS to a lesser extent.
Ukrainian Parliament
Among other activities, the Parliament launched a series of online seminars for members and staff of the Verkhovna Rada, the Ukrainian Parliament. The seminars cover legal harmonisation, best practices in legislative processes, ethics and conflict of interest, among other things. The Parliament also supports its Ukrainian counterparts through mentoring, organising study visits, conferences, seminars and roundtables. The parliaments also cooperate on digitalisation, strategic foresight and translation.
Dialogue and conflict mediation
Since 2015, the Parliament has sought to make conflict mediation a permanent part of its external activities, setting up a special administrative unit and the Jean Monnet Dialogue for Peace and Democracy in 2016. This instrument promotes parliamentary mediation and pragmatic dialogue for the achievement of concrete consensual results. Such dialogues, bringing together political actors from third countries, have been held with counterparts from Moldova, North Macedonia, Ukraine and Serbia.2 Each of these dialogues, co-facilitated by Members, is tailored to the political circumstances and priorities.
Another tool, the Parliament's Young Political Leaders programme, connects young political activists and civil society actors from non-EU countries with each other and with their peers in the European Parliament. Shared experience promotes a culture of dialogue and tolerance, both of which are important to upholding democratic values and strengthening democracy.
Promotion of human rights
The Parliament regularly debates human rights issues and situations and adopts resolutions condemning human rights violations and calling for action. These resolutions may address specific countries, situations, or thematic issues, such as freedom of expression, the rights of minorities and women's rights, among others. The resolutions aim to raise awareness of human rights abuses, support human rights defenders and shape the EU's human rights policy through oversight and scrutiny of the Commission and the Council and through concrete policy proposals. Resolutions may be a part of the legislative process, originate from committee reports (own initiative reports), or follow urgency debates on human rights violations. Parliament's annual resolution on human rights and democracy assesses the EU's policy achievements and challenges, providing an evaluation of its global impact. In addition, Parliament's President promotes human rights through public statements and diplomatic engagements. The DROI subcommittee attached to AFET manages human rights files and is at the forefront of Parliament's human rights action. Other committees also address human rights in external relations, and Parliament's standing delegations integrate human rights considerations in their engagement with non-EU parliaments.
Each year the European Parliament awards the Sakharov Prize for Freedom of Thought to those that have made significant contributions to the promotion of human rights and democracy. In this way, Parliament raises awareness about human rights issues and recognises the work of human rights defenders. Parliament's annual Sakharov fellowship for human rights defenders offers a capacity building programme to up to 14 human rights defenders, following which alumni remain in touch with Parliament's activities. In parallel, the Women Empowerment programme offers training modules (human rights-oriented training, seminars, workshops or study visits) to empower women in politics. The Triangle for Democracy programme connects civil society, media and parliaments to discuss fighting disinformation and protecting freedom of expression.
The Parliament co-decided the EU's allocation of funds under the Neighbourhood, Development and International Cooperation Instrument (NDICI) – Global Europe and other key instruments that promote human rights worldwide. As a co-legislator, it shapes the EU's external financing instruments, ensuring that human rights considerations are integrated. Finally, under Article 218(6) TFEU, Parliament's consent is required upon the EU's accession to the European Convention for the Protection of Human Rights and Fundamental Freedoms.
Restrictive measures
The Parliament does not have a legislative role in the imposition of restrictive measures (sanctions). Nevertheless, it often debates and adopts resolutions regarding their implementation and effectiveness. These can influence the decisions of the Council, which has competence for the imposition, prolongation and lifting of sanctions. For instance, the European Parliament has repeatedly called for more sanctions in view of Russia's war against Ukraine. It has stated the necessity to expand the sanctions regimes applicable to Iran. Parliament has also called for and supports horizontal sanctions regimes, including the EU human rights sanctions regime. Additionally, Article 215 TFEU requires the Council to inform the Parliament about the adoption of these measures. Whereas the Parliament has no formal say on the imposition of sanctions, it can act as a co-legislator (and has in some instances), on the acts pertaining to the restrictive measures. Notably, in 2024, on an equal footing with the Council, the Parliament adopted the Directive on the definition of criminal offences and penalties for the violation of EU restrictive measures.
Role in common security and defence policy
The CSDP is considered a primarily intergovernmental competence of the EU, characterised by the dominant role of the European Council and the Council. Article 42(2) TEU stipulates that a common EU defence would be decided unanimously by the European Council. At the same time, CSDP decisions are reached by unanimity in the Council (under which two ambassadorial-level committees, namely COREPER II and the Political and Security Committee (PSC), operate and work on foreign policy and crisis management issues respectively). Consequently, the European Parliament has no direct involvement in the decision-making in CSDP per se.
SEDE: A standing committee
In December 2024, Parliament agreed to upgrade the status of the sub-committee on Security and Defence to that of a standing committee. Under this decision, SEDE will promote, implement and monitor CSDP and other relevant EU action, including EU defence capabilities and the policies leading to a single market for defence, external hybrid threats, the CSDP civilian and military missions and operations and the parliamentary oversight of several EU structures and agencies, such as the European Defence Agency and the EU Satellite Centre (within CSDP).
Nevertheless, the Parliament has emerged as a new, important actor in the development of European defence industrial policy, including the defence technological and industrial base, as a co-legislator with influence on key sectors of the CSDP. A series of Treaty provisions on industrial policy (Articles 170, 173, 179 and Title XIX TFEU) allow the financing of European defence industry projects and thus support European defence efforts in terms of competitiveness, skills and jobs. For instance, although under Article 41(2) TEU no EU funds may be allocated to operations with military or defence implications, the legal basis for the Regulation establishing the European Defence Fund is Article 173(3) TFEU, allowing EU involvement in policies and activities beneficial to establishing the necessary conditions for a competitive EU industry.
Space policy and security and defence
Articles 4(3) and 189 TFEU constitute the legal basis for EU competence in space policy. Although space and security and defence are interconnected, the military aspects of space policy in principle remain intergovernmental and are decided by the Council. As a result, the European Parliament acts as a co-legislator only for civil action related to the exploration and exploitation of space.
Under Article 36 TEU, the European Parliament can address questions and make recommendations to the Council or the HR/VP, holds a biannual debate on the implementation of the CFSP, including the CSDP, and adopts an annual own-initiative report on the CSDP. Moreover, the HR/VP is required to regularly consult the Parliament on the 'main aspects and the basic choices' of the CSDP and 'inform it of how those policies evolve', while ensuring that its views are taken into consideration. In this context, the HR/VP presents an annual report to Parliament.
Through the Declaration on Political Accountability, the HR/VP has committed to enhancing the status of the 'Joint Consultation Meetings', which allow for a group of Members to discuss civilian CSDP missions with their counterparts from the PSC, the EEAS and the Commission, and affirmed the Parliament's right to access confidential information on the CSDP.3 While the European Parliament exercises control, scrutiny, and authority through its budgetary powers regarding several aspects of the CSDP, Members are not formally consulted before the adoption of CSDP decisions with budgetary implications and are not involved in the decision-making process on EU military mission and operation expenditure.
Differences in civilian and military missions and operations financing
According to Article 41(1) TEU, all administrative expenditure related to the CFSP is charged to the EU's budget, while operational expenditure is charged to the Union's budget on the conditions that: i) it does not arise 'from operations having military or defence implications', or ii) the Council unanimously decides against. Consequently, civilian CSDP mission administrative expenditure is financed from the EU budget, with Parliament involved accordingly. Military operations benefit from the European Peace Facility, an off-budget tool for financing the common costs of CSDP missions and operations with military or defence implications, and from participating Member States; Parliament therefore does not exercise budgetary authority in this case.
Role in trade policy
Under the ordinary legislative procedure (OLP), the Parliament has an equal say with the Council on adopting trade and investment-related acts proposed by the Commission. The Parliament has accordingly shaped and adopted numerous legislative measures pertaining to economic security, namely, the EU Anti-coercion Instrument, the Distortive Foreign Subsidies Regulation, as well as the reviewed Dual-use Export Controls Regulation, which address the interlinkage between security and trade. Parliament also co-legislated on trade and sustainable development, adopting the Corporate Sustainability Due Diligence Directive and Deforestation Regulation, among others. The Parliament is currently working on the revised Foreign Direct Investment Screening Regulation and the review of the generalised scheme of tariff preferences (GSP), among others.
Since 2009, Parliament's consent to the conclusion, renewal or amendment of EU international trade, investment or association agreements is mandatory. This means that although the Parliament cannot modify the negotiated text, it can prevent the agreement from entering into force. Parliament's power was highlighted in 2012, when it rejected the anti-counterfeiting trade agreement (ACTA) as Members had serious concerns. Article 218 (10) TFEU and points 23 to 25 of Annex III to the Framework Agreement on relations between the European Parliament and the Commission also require the Commission to keep the Parliament immediately and fully informed throughout the negotiations. The agreement is currently under revision to improve the information flow on international agreements, among other things. However, the Parliament does not have a formal say during these stages. Beyond being informed, consulted and giving (or not) its consent, in line with Rule 117 of the Rules of Procedure, Parliament monitors trade negotiations, holds hearings, and conducts studies to ensure that agreements align with EU values and interests. The Parliament proactively outlines its positions on the agreement under negotiation in its resolutions. Although they are non-binding, Parliament can nevertheless leverage its influence as its consent is mandatory.
Under Article 218 (11) TFEU, the Parliament may also request an ex-ante opinion of the Court of Justice of the EU (CJEU) on an agreement's compatibility with the Treaties. If the opinion is negative, the agreement cannot enter into force unless it or the Treaties are revised. Once the agreement is ratified, the Parliament may submit it to CJEU ex-post review (Article 263 TFEU). The Parliament also monitors implementation of the agreement, including through participation in inter-parliamentary committees, where its delegation regularly meets with country/regional delegations to scrutinise developments, exchange views and adopt reports and resolutions.
Role in development and humanitarian assistance
In line with Articles 209 and 214 TFEU, covering development cooperation and humanitarian assistance respectively, the European Parliament adopts legislation on an equal footing with the Council. Under Article 214(5) TFEU and the OLP Parliament adopted the Regulation establishing the European Voluntary Humanitarian Aid Corps, in 2014, as well as the subsequent replacement regulations. The Parliament also oversees the implementation of development and humanitarian action by scrutinising the Commission's implementation measures and monitoring their delivery. Under NDICI, Parliament holds a biannual high-level geopolitical dialogue with the Commission. In December 2024, DEVE coordinators decided to set up a Scrutiny Working Group on the instrument.
Parliament consents to the adoption of the seven-year multiannual financial framework. It can modify the annual budget and has the power to reject it altogether. Furthermore, together with the Council it co-decides on the MFF sectoral programmes that channel the EU budget and set the criteria for the fund's allocation, such as NDICI. The European Parliament has traditionally sought to increase both development and humanitarian financing, normally succeeding in securing additional funding. Besides shaping the EU's humanitarian and development policies through its resolutions, statements, engagement, outreach, hearings, workshops, and scrutiny, Parliament's DEVE committee organises missions and ad-hoc delegations to third countries and global events on humanitarian assistance and development cooperation. The Parliament pays particular attention to inclusivity and to civil society, whose representatives are regularly invited to dialogues and hearings.
DEVE standing rapporteurs
In line with its priorities confirmed during the first half of the 10th parliamentary term in October 2024, DEVE appointed: two Standing Rapporteurs on the Global Gateway; one Standing Rapporteur on policy coherence for development (PCD) tasked with leading PCD mainstreaming; one Standing Rapporteur for education; one for humanitarian aid; a Member responsible for work on indigenous peoples; and a Member who will act as a focal point for child rights. Standing Rapporteurs are tasked to prepare the draft reports on their fields. DEVE also agreed to prepare own-initiative report on migration and development. Together with ENVI Committee, it will also co-craft a joint annual report on SDG implementation.
Role in European neighbourhood policy
European neighbourhood policy encompasses a variety of EU actions, programmes and relationships with its eastern and southern neighbours, aiming to ensure political, economic and security stability in the region(s).4 Parliament has broad competences including with regard to financing instruments, the conclusion of association agreements, and scrutiny of the Commission. The Parliament influences the share of financial resources from the EU budget directed to neighbourhood policy. It also acts as a co-legislator for establishing financing instruments, such as NDICI-Global Europe, which includes at least €19.32 billion for neighbouring countries. Moreover, the Parliament's consent is required in all cases pertaining to association agreements, agreements with important budgetary implications and agreements to whose policy areas the OLP applies, or where parliament's consent is required under Article 218(6) TFEU. Under Article 291 TFEU, the Parliament oversees the implementing measures/acts for agreements with third (including neighbourhood) countries.
Parliamentary diplomacy plays a pivotal role in European neighbourhood policy. The Parliament sends its delegation to the Euronest Parliamentary Assembly for 'the consultation, supervision and monitoring' of the Eastern Partnership. Similarly, its delegation to the Parliamentary Assembly of the Union for the Mediterranean allows for closer relations with Mediterranean neighbouring countries.
Role in enlargement policy
The European Parliament must consent to the signature of an accession treaty with an acceding country, in line with Article 49 TEU. It may also adopt recommendations on the general strategy for enlargement. Equally, if a Member State decides to withdraw from the EU, Parliament's consent is mandatory for the conclusion of the withdrawal agreement, as outlined in Article 50 TEU. Parliament notably consented to the conclusion of the withdrawal agreement with the United Kingdom in 2020. The Parliament may also adopt resolutions on the implementation of withdrawal agreements.
Parliament participates in the decision on funding related to enlargement, decided under the MFF and the annual budget. In addition, in line with Article 212 TFEU, Parliament acts as a co-legislator on sectoral regulations, which provide the basis for the economic, financial and technical cooperation measures, including financial assistance. Here, the biggest funding instrument for the pre-accession countries for 2021-2027 is the Instrument for Pre-accession Assistance (IPA III). Parliament also exercises its oversight over the IPA III by engaging in six-monthly high-level geopolitical dialogue with the Commission. This dialogue focuses on the overall implementation of the IPA III, including allocation of funds and, e.g., adjusting assistance to individual beneficiary countries. Through its non-legislative work, Parliament also underlines its positions. For example, its recommendation of 23 November 2022 on the new EU strategy for enlargement called to 'improve the consistency, efficiency, visibility and transparency of pre-accession assistance'.
As in other policy areas, the Parliament influences enlargement policy indirectly through its resolutions (e.g. resolution of 29 February 2024 on deepening EU integration in view of future enlargement), outreach activities, monitoring and scrutiny. To facilitate this, Parliament's AFET committee appoints standing rapporteurs for all candidate and potential candidate countries. Besides adopting resolutions and its own initiative reports on enlargement, in its annual resolutions responding to the Commission's latest annual 'country reports', Parliament expresses its position on the progress in the particular country. The Parliament also maintains bilateral relations with the parliaments of all enlargement countries through its delegations. Many of Parliament's democracy promotion activities are focused on pre-accession countries (see above).
Role in the external dimension of selected internal policies
Energy
Parliament is involved in both the internal and external dimensions of energy policy. For instance, under the OLP, it adopted a decision in 2017, requiring Member States to inform the Commission of their plans to negotiate energy supply deals with third countries before opening negotiations. The Regulation on trans-European energy infrastructure, adopted by the co-legislators in 2022, provides for the identification of projects of common and mutual interest with third countries (in particular neighbouring countries and countries with which the EU has established specific energy cooperation) to ensure the interoperability of energy networks. Parliament co-decided on assessment criteria for the projects, as well as on implementation and monitoring, among other aspects. The Parliament will also be a co-legislator in the expected revision of the Security of Gas Supply Regulation, which already includes important provisions relevant to the external dimension of EU energy policy.
Global Gateway
To narrow the global infrastructure investment gap by building sustainable and secure infrastructure in the digital, energy and transport sectors, the Commission launched the Global Gateway in December 2021. The strategy seeks to mobilise up to €300 billion of investment between 2021 and 2027. Parliament is an observer on the Global Gateway Board, which comprises the President of the Commission and Member State ministers of foreign affairs, and provides strategic guidance.
Moreover, under Article 218 TFEU, Parliament also gives consent to legally binding international agreements, including those concerning energy. In 2024, Parliament consented to the withdrawal of the EU from the Energy Charter Treaty. However, if an agreement is not legally binding, it escapes parliamentary scrutiny. For instance, Parliament's consent was not required when the EU concluded a Memorandum of Understanding on a strategic partnership in the field of energy with Azerbaijan (2022), and the Memorandum of Understanding on a strategic and global partnership with Tunisia (2023), both of which include energy dimensions.
Climate and environment
Under Article 191 TFEU, the EU promotes international-level measures to deal with regional or global environmental issues, and climate change in particular. Article 192 TFEU states the Parliament, under the OLP, may '[co-]decide what action is to be taken' by the EU to achieve the action, except for several measures where the Council decides after consulting the Parliament. Equally, the EU cooperates with third countries and international organisations; this cooperation 'may be the subject of agreements between the Union and the third parties concerned', the conclusion of which requires Parliament's consent. For instance, the Parliament consented to the 2016 Paris Climate Agreement. In 2024, it approved the conclusion of the Treaty of the High Seas. Through its budgetary and scrutiny powers, the Parliament also ensures that climate and environment considerations are included in the EU's programming, financing and other activities.
Migration
Under the OLP, Parliament may adopt measures for a common European asylum system, comprising partnerships and cooperation with third countries to manage inflows of people applying for asylum, subsidiary or temporary protection (Article 78 TFEU). However, in the last decade, the EU has increasingly resorted to informal arrangements with third countries on migration (e.g. Frontex Working Arrangements, Standard Operating Procedures, Memoranda of Understanding, the EU-Turkey statement). As these kinds of agreements and arrangements are in principle not legally subject to parliamentary scrutiny and fall outside the CJEU's jurisdiction, the European Parliament has raised its concern through resolutions hearings and recommendations and has exerted political pressure. More recently, during Dubravka Šuica's hearing in Parliament, Members urged the (then) Commissioner Designate to increase transparency and ensure democratic oversight of agreements with migration aspects. The new Commissioner for the Mediterranean consequently promised to regularly consult Parliament, especially before signing Memoranda of Understanding and strategic agreements, and to ensure that Parliament has a voice in shaping these partnerships.
Parliament's scrutiny of Frontex
Frontex, the European Border and Coast Guard Agency, plays an increasing role in cooperation with third countries on return and readmission, the fight against human trafficking, provision of training and assistance to third-country authorities for border management and control. Frontex is accountable to the Council and the European Parliament and this cooperation is normally carried under the 'status' agreements, which require Parliament's consent. In 2021, Parliament took an initiative with its Committee on Civil Liberties, Justice and Home Affairs (LIBE) establishing the Frontex Scrutiny Working Group to monitor the agency's functioning of the agency and its accountability to Parliament. Following a fact-finding investigation, Parliament outlined a number of concerns and recommendations in its report of July 2021. Parliament subsequently postponed budget discharge for Frontex for 2019 and 2020. This led the agency to take action to address Parliament's concerns. In its resolution of 14 December 2023, Parliament further called on Frontex to share periodical evaluation of joint operations in third countries and to continuously assess the impact and scope of its operations.
The Parliament also addressed the external dimension of the new pact on migration and asylum. Through its resolutions it emphasised the importance of tackling the root causes of irregular migration and quests for asylum.
Research, education, sport and culture
Under the OLP, Parliament may adopt incentive measures, except for harmonisation of EU laws and regulations, to foster cooperation with third countries and international organisations on education and sport (Article 165 TFEU), vocational training (Article 166 TFEU) and culture (Article 167 TFEU).
Global health research partnership
Under Articles 187 and 188(1) TFEU, the European Parliament was consulted before the Council adopted its regulation establishing the Global Health European and Developing Countries Clinical Trials Partnership (EDCTP3) Joint Undertaking under Horizon Europe. The EDCTP3 Joint Undertaking is a partnership between the EU and several European and African countries to deliver new solutions to reducing the burden of infectious diseases in sub-Saharan Africa by strengthening research- and innovation-based capacities.
Together with the Council, Parliament also adopts the programme for research and innovation, which provides for cooperation in EU research, technological development and demonstration with third countries or international organisations (Article 182 TFEU). Through the Regulation establishing Horizon Europe, Parliament inter alia co-defined the terms of third-country association.
Global governance and multilateralism
The European Parliament is a strong supporter of multilateralism and an actor in multilateral organisations through parliamentary diplomacy, hearings on the multilateral discussions (e.g. in the World Trade Organization, G20, United Nations), through resolutions and recommendations to the Commission, the Council or High Representative. Parliament's President (or a designated Vice President) participates in the G7 and G20 Speakers meetings. The Parliament is an associate member of the International Parliamentary Union. It advocates for the establishment of a UN Parliamentary Assembly to increase the democratic character, accountability and transparency of global governance.
Parliament adopts resolutions on the implementation of the UN Sustainable Development Goals and on the priorities to be pursued by the EU at the UN and at major multilateral conferences. On climate negotiations, the Parliament also sends its official delegation to the Conference of the Parties (COP) to meet with ministers, parliamentarians, civil society representatives, leaders of international climate organisations and other delegates. However, Members are not part of the negotiation team and do not have access to closed meetings, or to the internal EU coordination meetings between Member State delegates, the Council and Commission, despite repeated requests to be included.
On global trade, Parliament co-organises the Parliamentary Conference on the WTO together with the Inter-Parliamentary Union; attends the WTO Ministerial Conferences as part of the EU Delegation and contributes to the Commission's work in the WTO with resolutions and reports. It also closely monitors the evolution of disputes involving the EU and is required to give its consent to WTO agreements, as is the case with other international agreements (see Article 218 TFEU).
Parliament may make recommendations to the Council or the High Representative on the EU's CFSP (Article 36 TEU). Parliament adopted such a recommendation in 2020 in preparation for the 10th Non-Proliferation of Nuclear Weapons Treaty review process. In 2021, it adopted a resolution on the challenges and prospects for multilateral weapons of mass destruction arms control and disarmament regimes, calling on EU delegations to focus on global and regional disarmament, non-proliferation and arms control in their political dialogue with third countries. Through its dedicated delegation (D-NAT) the Parliament also has a special status in the NATO Parliamentary Assembly.
Endnotes
Classification
Policy areas: Energy | EU Democracy, Institutional and Parliamentary Law | Democracy | Development and Humanitarian Aid | Foreign Affairs | Global Governance | Human Rights | International Trade | Security and Defence
Regions: Asia and Pacific, Canada and United States, Central Asia, European Union, Latin America and Caribbean, Mediterranean and Middle East, RUSSIA, Non-EU Europe and the North, Sub-Saharan Africa
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