European Union

Agenda 2024 was dominated by the evaluation and then the mid-term review of NDICI – Global Europe, the financing instrument for external action. In its conclusions on the mid-term evaluation of the instrument, the Council notes that the instrument is overall fit for purpose. Luxembourg underscored the importance of achieving the goals set, particularly the climate and gender objectives, along with qualitative reporting and simple and transparent procedures to support effective cooperation. The mid-term review of the NDICI ultimately resulted in a pro rata cut to the programmable geographical and thematic envelopes, which has impacted the 2025-2027 budget programming of the partner countries in different ways. One of the main outcomes of the review was the creation of a budget dedicated to “Actions in countries with complex contexts”, designed to increase the flexibility of the EU’s commitment and to compensate for the removal of multiannual programmes for Burkina Faso, Mali, Niger and Iran. The review also signals a broader shift towards regionalising funds, notably through the introduction of investment envelopes, intended to facilitate the implementation of the Global Gateway strategy. In a joint initiative led by Luxembourg, France, Germany and Belgium, 14 EU Member States signed a declaration reaffirming the importance of meeting, by the end of the budget cycle, the minimum allocation set by the NDICI Regulation for sub-Saharan Africa, as well as maintaining the least developed countries as a priority group for EU development aid.

Monitoring the implementation of the Global Gateway strategy has been one of the Council’s other priorities. A list of 50 flagship projects was adopted, including the Luxembourg bilateral project entitled “Skills for tourism and forestry” (STAF) in Laos, co-financed by the European Union and Switzerland. The negotiations on the Council’s first conclusions on the Global Gateway, which began under the Hungarian Presidency and which have involved considerable debate regarding the scope and role of this strategy within EU external policy tools, is expected to be concluded in 2025. Luxembourg has been advocating a pragmatic approach tailored to the needs of local communities, the political context and market maturity, calling for a case-by-case analysis. In this framework, Luxembourg has continued to push for greater attention to the challenges of involving SMEs in the implementation of the Global Gateway strategy and the creation of lasting partnerships between the European private sector and that of our partner countries, especially in areas with high added value for Luxembourg.

Building on the momentum from the Spanish Presidency’s 2023 focus on the social, green and digital transitions, the Belgian Presidency placed strong emphasis on the importance of mutually beneficial partnerships, with human development at the heart of its concerns. This was reflected in the adoption of Council conclusions on global health and the hosting of a high-level conference on the subject. Luxembourg was also invited by the Commission to share its long-standing experience with innovative financing mechanisms in the framework of the meeting of Directors for Human Development in October 2024.

In response to multiple challenges and the deteriorating situation in the Sahel, guidelines on the EU’s commitment to development cooperation in politically constrained contexts were adopted in June in the CODEV working group, in an initiative welcomed by Luxembourg. These principles reaffirm the Member States’ intention to maintain a flexible, coordinated and operational Team Europe presence that supports local communities while avoiding the legitimisation of unconstitutional regimes.

Lastly, the Council adopted new conclusions on food security and nutrition, within which Luxembourg affirmed its commitment to a holistic approach to the transformation of food systems and to the effective implementation of the nexus between humanitarian action, development and peace. In addition, the Council adopted its conclusions on the European Court of Auditors’ special report on the Global Climate Change Alliance and on the European Court of Auditors’ special report on the EU Emergency Trust Fund for Africa.

On the humanitarian front, 2024 saw a total disregard for international humanitarian law, a worsening crisis in global hunger, economic instability, recurrent climate shocks and escalating geopolitical tensions. These interdependent dynamics have significantly deepened the vulnerability of already at-risk populations around the world, while the international community has been able to respond to only 43% of the humanitarian needs identified. Against this backdrop of growing humanitarian needs, shifting geopolitical realities and increasing restrictions on humanitarian access, the third edition of the European Humanitarian Forum was attended by Xavier Bettel, Minister for Development Cooperation and Humanitarian Affairs. Luxembourg, a steadfast advocate of maintaining an official development assistance (ODA) target of 1% of its gross national income, has committed to continue to earmark 15% of this ODA for humanitarian operations. Like most EU Member States, Luxembourg has maintained its commitment to responding to the catastrophic humanitarian situations in Gaza and Ukraine, while continuing to be attentive to other protracted and alarming humanitarian crises, such as those in Sudan, the Sahel, Syria and the Democratic Republic of Congo. This continued commitment was manifested in Luxembourg’s many pledges at funding conferences throughout 2024, supporting efforts in Ukraine, Gaza, Lebanon, the Sahel, Sudan and Ethiopia and other areas.

In the face of a total disregard for international humanitarian law (IHL) and the insufficient protection afforded to humanitarian workers, at the 34th International Conference of the Red Cross and Red Crescent Movement Luxembourg clearly and unequivocally reaffirmed the relevance and essential nature of IHL, while renewing its commitment alongside the EU through 10 strategic pledges. In the same spirit, the Council conclusions on protection in humanitarian contexts highlighted the critical importance of protecting civilians, ensuring compliance with IHL and strengthening coordinated responses to protection risks, in particular for the most vulnerable populations in crisis settings.