On April 3-4 this year, the first-ever high-level meeting between the European Union and the countries of Central Asia will take place in Samarkand. This landmark event will open a new chapter in relations between the regions, signaling a transition to a qualitatively new level of multilateral cooperation. The very organization of such a dialogue reflects the EU’s strong interest in deepening collaboration and its commitment to strengthening partnerships with the Central Asian states.
Ahead of the event, President of the European Council António Costa stated: “We live in a world of chaos and fragmentation, where the only possible solution for the EU is to strengthen partnerships for peace and prosperity. In a multipolar world, more active and targeted engagement is necessary. The first EU – Central Asia summit will contribute to strengthening our commitments to jointly ensure peace, stability, and sustainable progress”.
Equally significant was the statement by Vice President of the European Commission Margaritis Schinas, who noted that “The EU is taking Central Asia particularly seriously in the context of current geopolitical turbulence. At a time when the world is becoming increasingly unstable and insecure, Central Asia remains a region of positive changes. Our cooperation with Central Asia is not a one-time event; we are focused on a long-term perspective”.
Commenting on the growing cooperation between the EU and Central Asia, observers note that it has taken on a stable, systematic, and mutually beneficial character in recent years.
Establishing the Legal and Institutional Foundations of Partnership
Since the emergence of newly independent states in Central Asia, the European Union has been establishing bilateral partnerships with them. It is important to note that since 1991, the development of the EU’s strategy in Central Asia has undergone several key stages, shaped by changes in the international system, the dynamics of European integration (both enlargement and deepening), and Central Asia’s growing role in global politics – whether in terms of energy resources, transit potential, human capital, or geostrategic location.
The first large-scale cooperation initiative was the “Technical Assistance to the Commonwealth of Independent States” program (TACIS, 1991-2006), which supported the region’s countries in implementing political and economic reforms, transitioning to market economies, and strengthening the rule of law. Under this initiative, more than 3,000 projects were implemented, with a total funding of over €7 billion.
A key achievement of the TACIS program was the signing of Partnership and Cooperation Agreements with the Central Asian countries.
It is worth noting that in the 1990s, the EU’s policy toward Central Asia was primarily resource-oriented. The region was viewed mainly as a source of energy resources, with the EU actively promoting transport and logistics projects, such as TRACECA, aimed at ensuring the delivery of hydrocarbons to Europe.
After 2001, the focus shifted toward security cooperation. The main priorities became counterterrorism and combating drug trafficking from Afghanistan. During this period, the Border Management Programme in Central Asia (BOMCA) and the Central Asia Drug Action Programme (CADAP) were launched.
The following important milestone was the adoption of the first EU Strategy for Central Asia in 2007 (a separate program, the European Neighbourhood Partnership Instrument, was developed for the Eastern European CIS countries). This period marked the beginning of the EU’s perception of Central Asia as a unified region. A mechanism for annual meetings between the foreign ministers of the EU and Central Asian countries was also established.
Under the Strategy, a variety of projects were implemented, ranging from regional and environmental initiatives to those focused on security, human rights, and the rule of law. However, according to experts, the first EU Strategy fell short of expectations, as its broad scope included numerous shortcomings, which limited its appeal and effectiveness for Central Asian countries.
Moreover, the document underwent multiple revisions aimed at improving its efficiency, yet many of the initiatives and joint programs remained limited in scope. Although the Strategy was initially intended for ten years, it was replaced with a new program only twelve years later.
Central Asia in a New Dimension
The policy of good neighborliness and regional partnership pursued by the Republic of Uzbekistan, under the leadership of President Shavkat Mirziyoyev, has made a significant contribution to the reevaluation of the European Union’s strategy toward Central Asia.
As a result of joint efforts, a completely new political atmosphere has emerged in the region. Within just a few years, many long-standing issues that had accumulated over decades were resolved. Consequently, Central Asia is now becoming a space of mutually beneficial cooperation and sustainable development.
In other words, the region is no longer merely a bridge between East and West, as it has traditionally been perceived, but is now an independent and active player in international relations.
In this context, a revealing statement was made by then Vice President of the European Commission Josep Borrell in January 2024 at the EU – Central Asia Transport Connectivity Investors Forum: “Central Asia was a little bit in the middle of nowhere – and now, you are in the middle of everything”.
This shifting perception of the region’s role has been reflected in the EU’s strategic approach. Building on previous efforts, the adoption of the new EU Strategy for Central Asia in 2019 was guided by a core principle, supporting the development of regional cooperation. This approach is evident in the implementation of all ten areas of collaboration outlined in the new Strategy: human rights, democratization, education, economic development, energy, transport, environment, water management, intercultural dialogue, and regional security.
The strategic evolution is also illustrated by the introduction of new terms in the text of the Strategy, such as “connectivity” (enhancing interregional connectivity), “inclusiveness” (ensuring the region’s openness to all external actors), and “resilience” (the capacity to prevent risks and threats), all of which align closely with the aspirations of the Central Asian countries.
Today, the countries of the region, taking into account their internal needs and the evolving geopolitical landscape, are increasingly interested in attracting European investment, technologies, and innovations to address priority tasks related to ensuring stability and sustainable development in areas such as the economy, industry, energy, transport, human capital, and climate change.
Multifaceted Cooperation
The European Union’s recognition and consideration of the interests of Central Asian states have led to a significant intensification of comprehensive cooperation in a wide range of areas, including politics, security, trade, investment, and cultural and humanitarian relations.
In particular, the legal and regulatory framework for EU – Central Asia cooperation is being strengthened. In recent years, Brussels has been building relations with the five Central Asian states through Enhanced Partnership and Cooperation Agreements (EPCAs). To date, Kazakhstan and Kyrgyzstan have already signed such agreements with the EU. In March 2024, Turkmenistan signed a Protocol to the EPCA, while Tajikistan and Uzbekistan are in the final stages of preparing to sign their respective agreements.
An additional impetus to cooperation was provided by the Joint Roadmap for Deepening EU – Central Asia Relations, adopted in October 2023.
The roadmap encompasses key areas of engagement, including interregional political dialogue, expansion of trade and economic ties, energy development, the establishment of a climate-neutral economy, and collaborative responses to shared security challenges.
The EU and Central Asian countries maintain an active political dialogue at various levels. Two meetings of regional leaders took place in Astana in October 2022 and in Bishkek in June 2023, during which the parties discussed promising areas of cooperation and reaffirmed their commitment to further strengthening a comprehensive partnership.
Additionally, a series of ministerial meetings has been held, the most recent of which took place on March 27, 2024, in Ashgabat. The meeting focused on preparations for the upcoming EU – Central Asia Summit in Samarkand, as well as a wide range of topics, including the regional implications of the current geopolitical situation, the development of transport and digital connectivity, and cooperation in energy, water resources, trade, education, and science.
The strengthening of political dialogue is opening up new opportunities for expanding trade and economic ties, as well as for developing industrial cooperation. The European Union remains the largest investor in Central Asia, accounting for more than 40% of foreign direct investment over the past decade, exceeding €100 billion. This cooperation spans key sectors, including pharmaceuticals, construction, energy, and agriculture.
One of the strategic areas of partnership is the exploration and processing of mineral resources. In the context of diversifying supplies of critical raw materials, Central Asian countries are playing an increasingly important role in the global market. Memorandums of Understanding signed with Kazakhstan (in 2022) and Uzbekistan (in 2024) enable European companies to strengthen collaboration with the region in high technologies.
The implementation of the Global Gateway strategy in the transport and logistics sector is of particular importance. Central Asia is emerging as a key transit hub for Eurasian connectivity, with the Trans-Caspian International Transport Route playing a pivotal role.
Among the infrastructure projects aimed at enhancing the region’s logistics potential, the construction of the China – Kyrgyzstan – Uzbekistan railway holds special significance.
A new impetus for cooperation was provided by the outcomes of the first EU – Central Asia Investment and Transport Forum, held in Brussels in January 2024. During the forum, it was announced that €10 billion would be allocated for the modernization of the Trans-Caspian International Transport Route, which connects Asia with Europe.
Another important area of partnership with the EU is the digital integration of Central Asia into the global economy. In March this year, during the visit of EU Commissioner Jozef Síkela to the region, the Team Europe Initiative (TEI) on Digital Connectivity was launched. This initiative focuses on the development of satellite communications, the expansion of broadband internet access, support for digital innovation, and the strengthening of cybersecurity. These efforts contribute to building a more inclusive and resilient economic model, while also helping to bridge the digital divide.
Climate action and the transition to sustainable development remain another key focus of EU – Central Asia cooperation. Significant initiatives in this field include the SECCA project under the Team Europe Strategy, the Central Asia Water and Energy Program (CAWEP), and Green Central Asia. These programs aim to promote effective water resource management, the development of clean energy, and adaptation to climate change.
Strategic Priorities for the Future
Overall, the current state of relations between Central Asian countries and the European Union reflects a mutual desire to strengthen cooperation. The EU remains not only a key trade, economic, and investment partner for the region, but also an essential benchmark in matters of sustainable development, digital transformation, and environmental policy.
A comprehensive dialogue between the parties is becoming a crucial tool in shaping a new architecture of interaction. Deepening this dialogue enables the sides not only to adapt to global challenges but also to build more targeted and meaningful cooperation in priority areas, ranging from energy and digitalization to security and infrastructure development.
In light of the above, it seems appropriate to consider several proposals that could contribute to the formation of a long-term partnership.
For the EU:
– Maintain a firm commitment to supporting processes aimed at strengthening regional cooperation;
– Develop flexible mechanisms of engagement with the Central Asian countries that allow the EU’s strategy and policies to be adapted to contemporary realities;
– Focus on priority areas of cooperation, such as transport, energy, climate change, and human capital development, as they play a critical role in the region’s long-term growth.
– Further develop the institutional and legal frameworks of the partnership, including the completion of the signing of Enhanced Partnership and Cooperation Agreements (EPCAs) with all countries of the region, support the accession of Central Asian states to the GSP+ program, increase the representation of Central Asian professionals within EU institutions and promote the establishment of EU institutional branches in the region.
For Central Asia:
– Reaffirm a strong commitment to fulfilling all obligations undertaken within the framework of cooperation with the EU, thereby strengthening the region’s image as a reliable strategic partner;
– Continue the policy of deepening regional cooperation and constructive engagement with external actors, which will help solidify Central Asia’s status as a space of partnership and shared prosperity;
– Support the implementation of the EU’s Central Asia Strategy, demonstrating the region’s serious commitment to advancing cooperation with Brussels and enabling the EU to plan its actions and prioritize more effectively;
– Initiate cultural and humanitarian programs that promote people-to-people diplomacy and strengthen the positive image of Central Asian countries in the EU and vice versa.
Thus, the upcoming EU – Central Asia Summit in Samarkand presents a unique opportunity that will undoubtedly provide new momentum for the development of multifaceted cooperation between the regions. It will elevate this cooperation to a qualitatively new level – marked not only by the expansion of economic ties, but also by enhanced coordination in strategically important areas, thereby laying the foundation for a sustainable partnership.
Bakhtiyor Mustafayev,
Deputy Director,
ISRS under the President of the Republic of Uzbekistan