Why is the Black Sea region important?

The Black Sea is an area of significant geostrategic importance. As a critical connector between Europe, the Southern Caucasus, Central Asia and the Eastern Mediterranean, the Black Sea region plays a key role for European and overall global security, international trade, energy, critical raw materials and food security (notably grain). With its population of almost 164 million people the States surrounding the Black Sea (excluding Russia) generate a GDP of approximately €2 trillion. It has an untapped potential for economic development and strategic transit routes. Strengthening our cooperation and fostering enhanced economic links will contribute to the competitiveness of the region and of the EU itself.

The Black Sea is, furthermore, a dynamic hub of innovation and culture. The environmental challenges of the Black Sea equally demand stronger regional cooperation – to protect marine ecosystems, develop the blue economy, and increase climate resilience among coastal communities.

Its critical importance is underscored by Russia's war of aggression against Ukraine, which has shaken the foundations of the rules-based international order and exposed the vulnerabilities of European and regional security. In this context, we must swiftly address hybrid threats, such as cyber-attacks, disinformation campaigns and foreign information manipulation and interference (FIMI).

This calls for a robust, coordinated EU response. That is why we are stepping up with a comprehensive approach, supporting the democratic resilience of a region vital to Europe's stability and prosperity and asserting our interests.

What is the EU's role in the Black Sea region?

The EU's role and responsibility in the Black Sea region is increasing, particularly with the opening of accession negotiations with Ukraine, the Republic of Moldova; and with Georgia, should the country revert to the EU path. The EU enlargement process is a strategic investment to enhance regional security and resilience.  A coordinated approach with Türkiye, an EU partner of strategic importance and a candidate country is also crucial. Likewise, deepening relations with Armenia and Azerbaijan through cooperation in strategic areas is an important objective for the EU.  

Through its enlargement policy, the EU contributes to strengthening resilience in the region. Enlargement promotes core reforms on democracy and the rule of law, and also fosters new opportunities for investment, trade and regional cooperation.

The Black Sea countries also have significant trade relationships with the EU, which is the largest trading partner for most of them. The EU is also a significant market for their exports, including agricultural products, energy, machinery and equipment. Several of these countries also benefit from free trade agreements with the EU.

The EU is the largest trade partner for most of the countries in the Black Sea region with the overall trade volume of €310 billion and the second largest trading partner for Central Asia.

The EU is leveraging the full potential of the existing network of trade agreements between the EU and its Black Sea partners (the Customs Union and Deep and Comprehensive Free Trade Areas currently in force), which is a solid foundation for developing cross-border value chains and further regional trade integration and has already led to a significant increase in trade volumes in the region.

Why an EU strategic approach to the Black Sea region?

Today's geopolitical and security landscape has been reshaped by Russia's war of aggression against Ukraine, by strategic competition, fractures, instability and uncertainties. This context requires a change of paradigm in the EU approach to the Black Sea region. A visionary and comprehensive policy framework is needed that will ensure security and stability, inclusive and sustainable growth, and improved connectivity for the EU and its partners.

Can you describe the main areas of the new approach?

Given the current geopolitical context, ensuring security and safety in the region is at the heart of this strategy.

In parallel, the new strategic approach promotes growth and energy as well as transport and digital connectivity.  Key areas for economic growth, including the blue economy and agriculture, are also part of the new vision to ensure the potential of the Black Sea region is fully unlocked. Boosting renewable energy as well as innovation, research and knowledge-based advancements are another core area to ensure sustainable and integrated development of the region.

Finally, it is essential to better equip the region against climate change and environmental degradation, also future proofing the region against emerging challenges.

Will there be some specific actions accelerating implementation?

The strategy includes three flagship initiatives, designed to accelerate implementation and demonstrate immediate progress: the Black Sea Maritime Security, and the establishment of a Black Sea Maritime Security Hub; a dedicated Connectivity Agenda; and preparedness of coastal communities and blue economy sectors.

What will be the focus of the strategy in terms of maritime security?

Under the strategy's Flagship 1 “Black Sea Maritime Security,” a Black Sea Maritime Security Hub will be established. Maritime security in the Black Sea is essential for all areas of cooperation in the region, including for the blue economy, fisheries and maritime activities, which cannot be dissociated from each other ultimately. It is also critical for freedom of navigation and safety of shipping, that are essential for the development of transport corridors supporting trade. In addition, the military conflict and warfare-related pollution triggers security and environmental challenges that require swift and long-term measures on demining to reduce risks and pollution in the Black Sea and to protect its biodiversity on land and at sea. These environmental challenges are further augmented by the shadow fleet.

Russia's war of aggression against Ukraine has shaped a degraded maritime security environment, with prospects to last even after the cessation of military hostilities. Mined areas in the littoral States waters, drifting mines and other unexploded ordnance (UXO) create serious risks to maritime security. Cyber and hybrid challenges are equally factoring into the overall maritime security environment in the Black Sea, affecting negatively the safety of shipping.

The EU is committed to help turn the Black Sea into a mine-free sea basin through enhanced cooperation with its Member States, the Black Sea partners, like-minded countries and partner organisations.

The focus of other EU key future action will be on strengthening information sharing and maritime situational awareness, on the protection of critical maritime infrastructure and capabilities, as well as on broadening coast-guard cooperation. At the same time, the EU will continue to address the risks posed by the shadow fleet used by Russia to maritime safety and the environment in the Black Sea. Cooperation at EU level and with the EU Member States, accession countries and partners will be key to this end, building on regional initiatives and national proposals to ensure safe shipping and resilient critical maritime infrastructure. Relevant EU Agencies and like-minded partners will be involved in the implementation of the above actions as appropriate.

What is the “Connectivity Agenda”?

The Connectivity Agenda linking Europe with Central Asia through the South Caucasus is one of the flagships of the EU's strategic approach to the Black Sea. It aims to boost economic growth, competitiveness and regional integration, while aligning with the extended Trans-European Networks and EU's decarbonisation goals and international commitments.

 The Connectivity Agenda will focus on:

• Improving transport corridors (e.g., the Trans-Caspian Transport Corridor) and complementing existing ones (e.g., the Baltic Sea-Black Sea-Aegean Sea and Rhine-Danube corridors) to enhance connectivity between the EU, the Black Sea region, and Central Asia.
• Developing green energy links by investing in energy trading, market integration, and building a larger Energy Union to increase energy security, affordability, and the use of renewable sources.
• Establishing digital links by creating secure, high-capacity internet connections to promote safe data flows, digital skills, and innovation, and strengthen digital resilience.

The Eastern Partnership, as a strategic and ambitious policy framework, will have a key role in pursuing regional cooperation, investments and alignment in connectivity.

How will the EU's strategic approach contribute to energy security and diversification?

Cooperation with regional partners is one of the essential actions to support the EU's efforts to phase out remaining Russian energy imports while also accelerating energy diversification.

In particular, the Black Sea region holds vast renewable energy potential, which can be leveraged to support decarbonisation, boost resilience, and unlock new investment opportunities for clean technology development.

Regional cooperation with partner countries will be key to lay the groundwork for integrated regional energy markets, while contributing to the phase-out of remaining Russian energy imports and strengthening the EU's energy security. Some of the key actions include:

Tackling gaps in regulatory frameworks, increasing efficiency of maritime administrations and encouraging the exchange of good practices to enable transition towards a cleaner, safer, more energy-efficient and decarbonised maritime transport and port system.

Enhancing the planning for grid development, convergence of regulatory frameworks and network codes, as well as cross-border renewable energy projects contributing to a higher uptake of renewable energy sources.

Deepening cooperation on critical raw materials that can ensure sustainable and diversified supply chains, ultimately contributing to mutual prosperity.

Protection of energy infrastructure to improve physical security, while optimising energy flows and ensuring the safeguarding of existing submarine cables in the Black Sea.

How is the EU's strategic approach going to boost competitiveness in the Black Sea region?

The EU's strategic approach to the Black Sea will boost sustainable growth and competitiveness through territorial cohesion and balanced development to ultimately reduce gaps and make the region more appealing to live, work, and invest.

Investment in blue economy will be prioritise sustainable aquaculture and maritime tourism by strengthening local community and regional stakeholder engagement. The private sector will also be mobilised to facilitate access to funding mechanisms for SMEs and ensure larger-scale investments in blue economy, including under the EU cohesion policy funds.

The EU will also facilitate and preserve established trade routes in agriculture, including transportation and storage of food products, combined with improvement of production standards and sustainable farming practices (e.g., in energy and water efficiency).

Education, skills, research and innovation are key drivers of competitiveness and economic growth. Building on existing partnerships in the region, the EU aims to modernise curricula and increase mobility between education and training institutions in the Black Sea region and EU Member States. Ultimately, workers and job seekers will be equipped with necessary skills while talents will benefit from re- and upskilling.

What will be done on environmental and climate resilience?

The Black Sea region is very vulnerable to climate change and environmental degradation. Climate change impacts are stronger in the Black Sea region than in the rest of Europe. Marine litter is almost twice as high as in the Mediterranean Sea. For many pollutants, observed concentrations exceed toxicity thresholds. In the marine environment, environmental degradation is further amplified by Russia's actions in its war against Ukraine. Therefore, acting on environmental and climate resilience is very important.

Several measures are envisaged to address environmental and climate challenges. These include for example assessing and tackling environmental damages for the Black Sea that stem from Russia's war of aggression, a more intense scientific cooperation, environmental monitoring and data management, identification and facilitation of projects to enhance environmental, water and climate change resilience. Regional environmental cooperation and governance will also be developed further, including through strengthening the role of civil society and promoting dialogue with private sector bodies.

How will preparedness of coastal communities and blue economy sectors be reinforced?

The EU will work with the Black Sea countries and other partners to improve preparedness for anticipating, preventing, managing and responding to the climate change related risks,and other environmental and disaster risks faced by coastal areas. This will build on Black Sea countries' policies on climate change adaptation and drawing from EU best practices. Special emphasis will be put on cooperation with local authorities, civil society organisations, and other stakeholders on the ground, including youth.

What actions are envisaged for better civil protection?

The new strategic approach aims at advancing regional cooperation on preparedness. This will be done by increasing the understanding of crises and their implications; setting minimum criteria for preparedness related to environment, climate, and natural hazards; and improving communication networks. Where feasible, the Black Sea countries will be associated with relevant EU preparedness initiatives in line with the European Preparedness Union Strategy. This will build on cooperation related to the Union Civil Protection Mechanism and other frameworks. Together, we will focus on reinforcing disaster management systems. This will include measures to improve emergency plans and early warning systems, further harmonise procedures, update national disaster risk assessments and conduct additional full-scale exercises when relevant.

How is the strategic approach related to other EU policy initiatives?

The EU strategic approach to the Black Sea region is part of a new package of EU policy initiatives tailored to the broader new geopolitical dynamics. Some of them have been published already, and some are yet to be adopted.

With the European Preparedness Union Strategy (published on 26 March), the EU is seeking to enhance the EU's preparedness and readiness for future crises across seven thematic areas and resilience through external partnerships is one of them. Some of its key actions endorsed under these thematic actions bear also relevance for the EU future engagement in the Black Sea region, notably on societal resilience or on resilience against disruptive technologies, cyber, hybrid and hostile activities by foreign malicious actors. The upcoming European Democracy Shield will further develop concrete ways to enhance our societal resilience and preparedness against disinformation campaigns and foreign interference and manipulation instruments.

With a new Action Plan set to strengthen the security and resilience of submarine cables (published on 21 February 2025), the EU is looking into concrete ways to significantly enhance its submarine cable infrastructure and protection of critical maritime infrastructure; protection of critical maritime infrastructure is also key among measures that the new EU strategic approach proposes for the region.

On sea basins, the upcoming European Oceans Pact will seek to foster a broader, integrated and holistic approach to ocean governance across all sectors, including maritime security; coherence is ensured among the Pact's provisions on the Black Sea basin and the actions relevant notably for maritime security in the Black Sea, with a focus on better information sharing, coast-guards cooperation or security for critical maritime security infrastructure.

An upcoming EU Ports Strategy will also focus on the mounting challenges that EU ports are facing, including rising geopolitical risks, cybersecurity threats, and increasing demands for environmental and social sustainability. This reality is factoring into the military mobility corridors in EU countries. We will need more and better equipped sea and river ports and airports in the region.

What is different from the EU Black Sea Synergy?

The EU strategic approach to the Black Sea region will build on the results achieved under the Black Sea Synergy, the EU policy framework for the region in place since 2007.

Compared to the Black Sea Synergy the EU strategic approach to the Black Sea brings our policies in the region in a coherent strategy and includes a strong security angle, with new cooperation proposals to enhance maritime security, demining, protecting critical infrastructure and countering hybrid threats. This is reflected notably in the Flagship 1 Black Sea maritime security and the establishment of a Black Sea Maritime Security Hub.

What impact is Russia's war of aggression having on the region?

Russia's war of aggression against Ukraine has deeply destabilised the region, exposing security interdependencies, democratic fragility, economic dependencies, and low preparedness to external shocks. These challenges call for a robust, coordinated response. Russia's aggression has brought the level of security to its lowest point since the Cold War, with far-reaching implications to both regional and global stability.

Russia's aggression prevents the countries in the Black Sea region from taking full advantage of opportunities for growth and social development opportunities, including those that could be unlocked through energy transition, transport and digital connectivity, the blue economy as well as increased circularity. Moreover, it has also exacerbated environmental degradation and intensified existing climate challenges in the region.

Russia's war of aggression against Ukraine has had impacts and repercussions also on food security in the Black Sea region. The region's grain production and exports are vital to meeting food needs across the world, including in the Middle East and North Africa. Through various initiatives, most notably the EU-Ukraine Solidarity Lanes, which provide a lifeline to the Ukrainian economy, the issue was at least partially mitigated. Importantly, the Solidarity Lanes also continue providing vital new transport routes, including for non-agricultural Ukrainian exports to the EU as well as for EU exports to Ukraine. The total value of trade via the Solidarity Lanes since May 2022 is around €213 billion, including around €150 billion imports to Ukraine.

Ukraine's successful establishment of a new maritime corridor has helped restore exports of grain from its Black Sea ports, a development further supported by the sustained capacity offered by Ukrainian Danube ports that link directly to Black Sea or EU seaports.

Ensuring access to Ukraine's ports and securing maritime traffic for agricultural trade remain essential to safeguarding global food security. At the same time, the Black Sea route must be backed by reliable land-based alternatives.

Despite these successful efforts, Russia's regular and targeted attacks continue to impede transport and overall investment in regional projects and infrastructure and leads to high insurance costs. Substantial investments will be needed not only to reconstruct the transport infrastructure in the Black Sea and Danube region, which has suffered extensive damage due to repeated attacks, negatively impacting trade, raising costs and undermining reliability of transport, but also to upgrade and modernise the outdated infrastructure, logistics systems and border control equipment to meet EU standards.

Russia's longstanding interference in neighbouring states – including fomenting or simulating separatism, manipulating elections, exploiting economic dependencies (particularly in the energy sector), restricting freedom of navigation, and posing a direct military threat – continues to undermine regional stability and democracy. Addressing all forms of Russia's malign interference and restoring the rule of law in the Black Sea region is critical for upholding international law and EU values.

The EU remains fully committed to supporting Ukraine and other Black Sea countries in building peace and fostering dialogue.

How will the strategic approach be implemented?

The new approach gives strategic direction to several EU policies and initiatives under a comprehensive framework.

First, it supports security and stability in a region under increasing geopolitical pressure. Security in the Black Sea region and in Europe is closely interlinked with Ukraine's security. The strategic approach will therefore address the protection of critical infrastructure, address the threats posed by the shadow fleet and drifting mines, counter hybrid threats and deter future aggressions in the region to consolidate peace.

Second, in order to boost competitiveness and growth, the new approach presents an offer for closer regional cooperation, coordination of investments and regulatory alignment in the area of connectivity in sectors such as transport, energy and digital. Developing connectivity means unlocking significant investment and growth opportunities, as part of a broader connectivity agenda linking Europe with Central Asia through the South Caucasus.

Third, the EU strategic approach aims to extend common action on environmental, climate, and other vulnerabilities faced by the Black Sea region. Helping communities to enhance their preparedness will receive special attention. Addressing the environmental damages caused by Russia's war of aggression and returning to the path of environmental quality restoration will be of utmost importance.

Over the years, the European Union and the countries of the Black Sea region have established a range of partnerships and cooperation frameworks, bilaterally and regionally. Also, many recent EU policies are highly relevant for the region. Their benefits can be increased through better alignment, supplemented by a more intense policy dialogue and outreach to stakeholders.

What kind of follow up is foreseen after the publication of the Joint Communication?

The Commission and the High Representative propose the organisation of a dedicated EU ministerial meeting with partner countries in the Black Sea region to develop and advance different cooperation under the new EU approach to the Black Sea region. Follow-up ministerial meetings could be organised as appropriate to monitor and evaluate progress of specific actions agreed in this context.

The Commission and the High Representative will also provide a first report on the implementation of this strategic approach to the Black Sea region after one year of implementation.

How will the strategic approach benefit people?

The people of the region continue to aspire to live in a more secure, safer, and more prosperous environment, where human rights, the rule of law, and good governance ensure sustainable growth and social progress remain. Together, with the EU Member States Bulgaria and Romania, Ukraine, Türkiye, the Republic of Moldova, Georgia, Azerbaijan, and Armenia account for almost 164 million people (2024 data). Their aspirations matter for the EU, especially as most of these countries are on the path towards European integration.

By transforming the Black Sea into a more secure, connected and climate-resilient neighbourhood, the EU's strategic approach directly serves its citizens: stronger maritime and cyber security safeguards critical under-sea cables, trade routes and energy corridors that power daily life; diversified transport, digital and energy links reduce costs and supply-chain risks for businesses and consumers alike; coordinated climate-adaptation measures help protect Europe's coasts, food systems and jobs from environmental shocks; and closer alignment of neighbouring countries with EU rules reinforces the rule of law, curbs illicit flows and expands the Single Market — collectively delivering greater safety, affordability and prosperity for people across the region and beyond.

How will the strategic approach support EU integration?

The EU will support interested partners on their path towards EU integration, notably in consolidating the rule of law, democracy, climate resilient societies and economies with gradual integration into the Single Market.  The EU will also support its partners in aligning with the EU Common Foreign and Security Policy, including the implementation of EU restrictive measures (sanctions) and in alignment with the Common Security and Defence Policy.

By anchoring candidate countries in regional initiatives ranging from research and innovation to blue-economy partnerships, the new strategic approach contributes to their alignment with EU standards and reinforces their accession trajectory.

Will the new approach address cyber threats and Foreign Information Manipulation Interference?

Countries in the Black Sea region are targets of hybrid threats, including cyber-attacks, disinformation campaigns and FIMI. This undermines public trust in democratic institutions and media, fuelling political tensions and instability in the countries.

The EU will use the EU Hybrid Toolbox and the EU Cyber Diplomacy Toolbox, among other instruments, to address these specific threats and boost the region's resilience. A network for joint response mechanisms will be established with partner countries to tackle FIMI and disinformation campaigns. It will coordinate joint actions and improve information sharing across the region.

For countering disinformation campaigns and FIMI, it will be important to establish cooperative networks involving civil society, fact-checking organisations and independent media, because they are present in the countries and understand better the context. The use of innovative technology and artificial intelligence will also become crucial tools to identify and counter FIMI and disinformation online. Finally, the EU will also promote media literacy and critical thinking, including for young people, in order to foster a culture of democratic engagement.

Are activities on demining part of the strategic approach?

A key challenge in the Black Sea is the danger posed by mined areas in the littoral States waters but also drifting mines and other unexploded ordnance (UXO). They create serious risks to maritime security, the marine environment and threaten the transport and trade corridors.

The EU programmes and projects under the European Maritime, Fisheries and Aquaculture Fund (EMFAF), HORIZON and Interreg can be used to map and assess the state of UXO, as well as strengthen maritime security in the Black Sea through enhanced cooperation with its Member States, the Black Sea partners, like-minded countries and partner organisations.

The strategy acknowledges the objective of a mine free Black Sea region. Building on and coordinating with the existing trilateral demining initiative by Bulgaria, Romania and Türkiye for the Black Sea, the EU will assess the possibilities to engage further on demining initiatives in the region in a long-term perspective.

What is the interplay between the Eastern Partnership and the new strategic approach to the Black Sea?

The Eastern Partnership remains a cornerstone of the EU's engagement with its eastern neighbours, offering a robust and mature policy framework that promotes core reforms, including those essential for the accession and association processes. With a strong emphasis on the rule of law, strengthening democratic institutions, and good governance, the Eastern Partnership supports the development of resilient democracies and fostering a culture of stability, security, and cooperation in the region.

The strategic approach to the Black Sea and the Eastern Partnership are therefore deeply interconnected under a shared objective: to foster stability, prosperity, and security in partner countries, while building a more resilient and thriving region. By leveraging the Black Sea's untapped potential, the EU aims to drive transformative change, promote sustainable development, and deliver tangible benefits to the citizens of all engaged countries.

How is cooperation with NATO and other partners reflected in the new approach?

In the current context, the EU's strategic partnership with NATO is essential for our Euro-Atlantic security.  For the 23 EU Member States that are also NATO Allies, NATO is a cornerstone of their collective defence. In line with the Strategic Compass the EU is strengthening its strategic partnership with NATO.

Following Russia's war aggression against Ukraine, the EU is committed to advance further strategic partnership in the areas of crisis management, maritime security, countering hybrid threats, including cyber and foreign information manipulation, emerging and disruptive technologies, climate change, resilience, defence industry and other issues of common interest. This is pursued in line with the agreed framework of the three Joint Declarations on EU-NATO cooperation signed in 2016, 2018 and 2023 and the agreed guiding principles for the EU strategic partnership with NATO - transparency, reciprocity and inclusiveness as well as the decision-making autonomy and procedures of both organisations.

Under the EU strategic approach to the Black Sea, the EU commits to increasing capacity, cooperation and information sharing on hybrid and cyber threats across the region, and to coordinate such initiatives with relevant like-minded partner countries and organisations, including NATO.

EU-NATO cooperation on maritime security continues under the established staff-to-staff talks. They cover a broad array of topics such as respective naval operational engagement, protection of critical maritime infrastructure, challenges posed by the shadow fleet and defence capabilities in the maritime domain. At the latest meeting in April 2025, the two staffs also exchanged on maritime security in the Black Sea.

Related topics

EU enlargement Foreign affairs and security policy Presidency 

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