Policy Papers by Isabelle Ioannides
European Parliamentary Research Service (EPRS), European Parliament, 2026
This European implementation assessment supports the European Parliament's implementation report ... more This European implementation assessment supports the European Parliament's implementation report on the EU Youth Strategy (EUYS) 2019-2027 prepared by the European Parliament's Committee on Culture and Education (CULT). Part I of this study examines recent European Commission developments on the EUYS, Parliament's oversight of the EUYS, and the results of consultations. Part II of the study examines EUYS implementation at the EU level and in six selected Member States, drawing on the most recent evidence from a literature review, stakeholder interviews, and a survey. It analyses the 11 European Youth Goals and their implementation and relevance, before assessing the extent to which the EUYS has promoted youth mainstreaming across policy areas. It further explores youth participation, focusing on social inclusion, equality and young people with fewer opportunities (case study 1), and examines the EUYS's role in improving access to quality education and training (case study 2). It concludes with recommendations to enhance the EUYS, thereby informing its update and future implementation beyond 2027.
ELIAMEP/EMBRACE - EU Horizon Programme, 2025
This briefing is based on scenario-building workshops in North Macedonia, Serbia, Ukraine, and Ge... more This briefing is based on scenario-building workshops in North Macedonia, Serbia, Ukraine, and Georgia, and conducted stakeholder interviews in Algeria. These consultations had a twofold aim: to assess the democratic trajectories and risks facing each country by 2030, and to evaluate how the EU can mitigate challenges while reinforcing democratic enablers. The locally led approach ensured that country-specific insights and informal power dynamics were captured, helping to refine projections for how external and internal pressures may shape democracy in the coming years.
The brief concludes by offering recommendations for the EU to recalibrate its democracy promotion strategies under conditions of geopolitical competition and uncertainty. It underlines that effectiveness depends on tailoring approaches to local realities, anticipating risks through foresight and scenario planning, and reinforcing the EU’s credibility as a consistent and strategic actor.
European Parliamentary Research Service (EPRS), European Parliament, 2025
On 21 October 2025, the European Commission under Ursula von der Leyen's second mandate adopted i... more On 21 October 2025, the European Commission under Ursula von der Leyen's second mandate adopted its work programme for 2026 (2026 CWP). In line with the Commission President's political guidelines and letter of intent and highlighting the need for full implementation of Mario Draghi's competitiveness report, the 2026 CWP places a strong emphasis on competitiveness, innovation and collective security. In parallel, the Commission commits to advancing simplification, implementation, and this year, also to strengthening enforcement. These three areas will remain key horizontal priorities for the entire Commission mandate. Just like last year's CWP, the 2026 CWP adheres to the seven headline ambitions put forward in the political guidelines. It is accompanied by a report on implementation, simplification and enforcement, the first of its kind. This new annual report is set to replace the annual burden survey.
EMBRACE - Embracing change: Overcoming obstacles and advancing democracy in the European Neighbourhood, 2025
This blueprint offers a forward-looking framework for strengthening the European Union’s approach... more This blueprint offers a forward-looking framework for strengthening the European Union’s approach to democracy promotion in its neighbourhood. Drawing on scenario-building exercises and consultations across Algeria, North Macedonia, Serbia, Georgia, and Ukraine, it highlights the need for an adaptive, context-sensitive toolkit that goes beyond static models of engagement.
European Parliamentary Research Service (EPRS), European Parliament, 2025
This document is prepared for, and addressed to, the Members and staff of the European Parliament... more This document is prepared for, and addressed to, the Members and staff of the European Parliament as background material to assist them in their parliamentary work. The content of the document is the sole responsibility of its authors, and any opinions expressed herein should not be taken to represent an official position of the Parliament. Reproduction and translation for non-commercial purposes are authorised, provided the source is acknowledged and the European Parliament is given prior notice and sent a copy.
Atlantic Council , 2025
The European Union Growth Plan for the Western Balkans represents a renewed push to accelerate th... more The European Union Growth Plan for the Western Balkans represents a renewed push to accelerate the region’s EU integration by offering early access to the single market, increased financial support, and a framework for deeper regional cooperation. Designed to spur economic development and political stability amid growing geopolitical pressures, the plan aims to provide tangible benefits before full accession. These include greater economic integration, enhanced investment opportunities, and improved living standards—mirroring the successful convergence seen in Central and Eastern Europe. Crucially, the plan requires regional governments to take an active role by submitting tailored reform agendas, potentially increasing local ownership and accountability in the enlargement process.
However, the Growth Plan’s effectiveness will hinge on robust implementation and political commitment on both sides. Concerns remain about the enforceability of conditionality mechanisms and the adequacy of the financial support offered, which falls short compared to that of EU member states in Southeast Europe. Success will require not only increased funding and consistent incentives from the EU, but also genuine reform efforts and institutional strengthening within the Western Balkans. Engaging civil society, aligning the plan with the EU’s green and digital agendas, and countering external influence are all essential to ensuring the initiative becomes a meaningful step toward EU enlargement rather than another missed opportunity.
European Parliamentary Research Service (EPRS), European Parliament, 2025
The Trade and Cooperation Agreement (TCA) between the European Union (EU) and the United Kingdom ... more The Trade and Cooperation Agreement (TCA) between the European Union (EU) and the United Kingdom (UK), which entered into force in May 2021, governs the EU's relationship with the UK, following its withdrawal from the EU. In addition to the European Commission evaluating the implementation of the TCA on an annual basis, Article 776 of the TCA provides for a joint review of the deal's implementation five years after its entry into force, in 2026. This briefing seeks to inform the drafting of the joint AFET-INTA implementation report on the TCA's implementation and provides an analysis of the data on trade flows between the EU and the UK in the last two years (2023 and 2024).
This briefing concludes that the TCA continues to have a stronger impact on the UK than on the EU in the trade relationship. Trade between the EU and the UK continues to be more complex and challenging compared to when the UK was an EU Member State, even if the implementation of the TCA in the last four years has been generally smooth, with some exceptions. The UK has managed to bounce back from COVID and Brexit less successfully than the EU and has, like the EU-27, been affected by Russia's war in Ukraine and inflation. EU-UK trade in goods decreased slightly in 2023 and 2024, and it is still below pre-Brexit levels. EU-UK trade in services (the TCA does not cover financial services), continues to be less disrupted, and surpassed pre-COVID-19 levels as of 2023. At a time of uncertainty on the future direction of trade policy, geopolitical upheaval, and the United States administration's (potential) new tariffs on imports from its trading partners (including the UK and the EU), the TCA offers an opportunity to deepen EU-UK trade relations.
European Parliamentary Research Service (EPRS), European Parliament, 2024
On 24 October 2023, the coordinators of the Committee on Development (DEVE) requested a study on ... more On 24 October 2023, the coordinators of the Committee on Development (DEVE) requested a study on implementation of policy coherence for development (PCD) in selected legislation. This ex-post evaluation seeks to support the PCD standing rapporteur's work and the DEVE committee's newly formed PCD Network. The focus of the study is how and to what extent PCD has been implemented in internal and external EU policies to support poverty reduction (and eradication) and development cooperation. The first part, written internally, offers an institutional perspective of PCD implementation. It assesses the guidelines, toolkits and methods that the EU institutions have developed for designing and applying PCD. It also examines Parliament's PCD oversight role and draws lessons on how to improve PCD design and implementation. Two externally prepared case studies evaluate if and how PCD was considered in the design and implementation of (i) the Conflict Minerals Regulation and its accompanying measures, and (ii) policies to facilitate legal pathways to EU migration. They also analyse whether PCD implementation in these two cases has influenced the design of other EU policies, and provide recommendations.
Clingendael, DGAP, ELIAMEP and Solution, 2024
The EU enlargement process has been blocked for at least the past decade. While the new geopoliti... more The EU enlargement process has been blocked for at least the past decade. While the new geopolitical landscape and urgency created following Russia’s invasion of Ukraine has brought EU enlargement back to the fore, bottlenecks remain in the EU enlargement decision-making process. This paper explores the limits of unanimity in the EU accession negotiations, especially when individual Member States obstruct the process over bilateral blockades unrelated to the formal membership criteria. To streamline EU enlargement, this briefing explores the potential of qualified majority voting (QMV) at key intermediary stages of the accession process. The analysis contributes to the debate on how to reform EU decision-making on EU enlargement so as to make it more effective and, by extension, so that the EU regains its credibility in its neighbourhood and beyond. If the EU is serious about its ambition to be a geopolitical actor, considering the political, legal and institutional implications of QMV in EU enlargement will be key.
European Policy Centre, 2024
There have been key wins for women's rights over the decades, but none of these wins can be taken... more There have been key wins for women's rights over the decades, but none of these wins can be taken for granted in the global fragility we are faced with. In this context, it is vital that we votes go to the ballot box at the European elections scheduled for June and that they pick candidates who can advance democracy.
Institute for Human Sciences (IWM), Vienna, 2023
Fixing enlargement and preparing the ground for an 'EU for the future' will not take place on its... more Fixing enlargement and preparing the ground for an 'EU for the future' will not take place on its own. It will happen through strong European leadership and a bold vision. There is certainly a role for all member states. The outgoing Swedish and the incoming Spanish European Union Presidencies need also to rise to this historic challenge and seize the opportunity. With the year 2024 divided between elections campaigns and the formation of a new Commission and Parliament, against the backdrop of war and an economic crisis, the time to plant the seeds of change is now, so that a comprehensive strategic plan can be laid out by the next European Commission and before the next multi annual financial framework. In this scenario, the next Enlargement Commissioner should be one of the most sought-after positions next year: she or he will have an opportunity to make history. The mission ahead for Spain in the second half of this year is itself historical: not just the bureaucratic task of closing as many outstanding chapters as possible ahead of 2024, but also to provide the launchpad for a European Union fit for the future.
European Parliamentary Research Service (EPRS), European Parliament, 2023
Consular protection is one of the rights derived from EU citizenship, a fundamental right in the ... more Consular protection is one of the rights derived from EU citizenship, a fundamental right in the EU legal framework. Directive 2015/637 on the coordination and cooperation measures to facilitate consular protection for unrepresented EU citizens in third countries obliges any Member State to offer unrepresented EU citizens in third countries the same protection as it provides for its own nationals. In practice, unrepresented EU citizens can seek assistance, for instance, an emergency travel document in case of arrest or detention, serious accident, serious illness or death, and relief and repatriation in the event of a natural disaster or political unrest. The directive does not, however, set minimum standards for consular protection for all EU Member States. In the 2022 implementation report, supported by consultations and external studies, the European Commission identified shortcomings in the directive's implementation, given the changing geopolitical environment and the outbreak of major crises and/or conflicts. The coronavirus pandemic, in particular, pointed to the importance of coordination for effective consular protection when thousands of stranded EU citizens needed to be urgently repatriated. Among the lessons identified, the Commission suggests clarifying the scope of unrepresented EU citizens' rights to consular protection in third countries and strengthening the role of EU delegations in coordinating action in a third country in crisis. The revision of the directive was originally included in the Commission work programme (CWP) for 2021, but was then delayed. The Commission published its proposal to amend Council Directive 2015/637 on 6 December 2023.
European Parliamentary Research Service (EPRS), European Parliament, 2023
The Economic Partnership Agreement (EPA) between the European Union (EU) and the Southern African... more The Economic Partnership Agreement (EPA) between the European Union (EU) and the Southern African Development Community (SADC), provisionally in force since October 2016, comprises the EU and its Member States, on the one hand, and Botswana, Lesotho, Mozambique, Namibia, South Africa and Eswatini (formerly Swaziland), on the other. Its stated objectives include poverty reduction, regional integration, capacity-building and economic growth. This study aims to provide an overview of the implementation of the EU-SADC EPA, focusing on the geo-economic perspective, given the complex and tumultuous geopolitical landscape. It examines the implementation context, including disruptive and regional risk factors, and the impact of relations between the SADC EPA countries and key global partners. The study also surveys EU and expert evaluations and effects of the EU-SADC EPA to date. It provides a screenshot of the development of EU-SADC trade and investment flows and studies Parliament's position and oversight activities on the EPA. The study ends with some lessons identified on ways to enhance the implementation of the agreement.
European Parliamentary Research Service (EPRS), European Parliament, 2023
Common foreign and security policy (CFSP) has a particular status in the EU legal framework, part... more Common foreign and security policy (CFSP) has a particular status in the EU legal framework, part of which is the unanimity rule within the Council. This report analyses decision-making rules in CFSP from a 'cost of non-Europe' perspective. It identifies CFSP challenges and the extent to which they could be attributed to unanimity. This allows us to identify the current 'cost of unanimity'. The report also analyses possible alternatives to unanimity decision-making in CFSP, such as a switch to qualified majority voting (QMV), including their costs and benefits. The study develops several policy options, including options within the current legal framework, options requiring Treaty change, and options requiring a departure from the intergovernmentalism in CFSP.
European Parliamentary Research Service (EPRS), European Parliament, 2023
This study analyses the early outcomes, benefits, risks and challenges linked to the implementati... more This study analyses the early outcomes, benefits, risks and challenges linked to the implementation of the EU-UK Trade and Cooperation Agreement (TCA), in provisional application since January 2021 and in force since 1 May 2021, for the EU and its Member States. Its chief focusis on the implementation of the levelplaying-field provisions – in particular, those dealing with environmental and social/labour rights protection – and on trade flows between the European Union (EU) and the United Kingdom (UK).
The study first sets the scene, outlining the potential sources of tension in EU-UK relations that hinder the application of the EU-UK TCA. It then examines the EU evaluations of the TCA's implementation at national and regional level,while also presenting experts' views on how the agreement has been performing. The study also providesa longitudinal and visual analysis of EU-UK trade flows to explain the changes and continuities observed. It then analyses the European Parliament's scrutiny of the EU-UK TCA. It concludes by charting the possible paths for enhancing the
performance of the EU-UK TCA,so that it can contribute to building trust between the two parties.
Todo en uno. La reforma y la ampliación de la Unión Europea
Politica Exterior, 2023
La reforma y la ampliación de la Unión Europea deben constituir un solo proceso encaminado a crea... more La reforma y la ampliación de la Unión Europea deben constituir un solo proceso encaminado a crear una Unión global más fuerte, más grande y más resistente en un mundo en conflicto. Lograrlo requerirá liderazgo y audacia.
SWP Working Paper, CENTRE FOR APPLIED TURKEY STUDIES (CATS) | WP NR. 01, FEBRUARY, 2023
Action on the Cyprus problem is urgently needed to break the deadlock in the negotiations and in ... more Action on the Cyprus problem is urgently needed to break the deadlock in the negotiations and in order to avoid consolidation of the rift between Greek and Turkish Cypriots. In light of the presidential election in the Republic of Cyprus (RoC) that will elect a new leader and against the backdrop of the victory of solution-oriented parties in the Turkish Cypriot local election, this working paper explores four external determinants that are reshaping the Cyprus problem. Firstly, the RoC’s European Union membership has helped strengthen Nicosia’s international standing but has not brought the Turkish Cypriot community out of isolation. Secondly, the financial crises and dependencies in both the RoC and the Turkish Cypriot community have ultimately deepened divisions between the two
and rendered the Turkish Cypriots more dependent on Turkey. Thirdly, the role of the so-called motherlands – Greece and Turkey – has played out differently in each the RoC and the Turkish Cypriot community. Fourthly, and of most concern, migration is being instrumentalised across the dividing Green Line while the changing demographic patterns illustrate how Greek and Turkish Cypriots are increasingly drifting apart. The paper puts forward a number of recommendations, including strengthening reconciliation efforts at the civil society level and instigating trade links between the two sides, even by sharing the profits from the exploitation of hydrocarbons. It also urges that the West should play a more decisive role in the Cyprus negotiations before the chances of a settlement that reunites the island dissipate.
European Parliamentary Research Service (EPRS), European Parliament, 2022
This study examines the implementation of the European Union (EU) Guidelines on Human Rights Defe... more This study examines the implementation of the European Union (EU) Guidelines on Human Rights Defenders, which constitute the policy framework and provide the operational means for protecting human rights activists in third countries.
The first part of the study, written internally, provides an institutional perspective of the implementation of the Guidelines. It assesses the development of the EU framework to support human rights defenders, including EU Member States' emergency measures, and evaluates the coordination of such efforts. It also examines the European Parliament's support for human rights defenders and considers its impact on the EU's overall work on defender protection.
The second part of the study, which was outsourced, evaluates the
implementation of the Guidelines from a bottom-up perspective. It provides an evidence-based analysis of how EU missions apply the Guidelines in countries where rights and freedoms are particularly challenged for human rights defenders, and assesses when and why the measures have not been applied.
The study also addresses ways in which implementation gaps can be bridged and recommends possible measures and action that could be taken to ensure the protection of human rights defenders.
Europe’s Futures programme, Institute for Human Sciences (IWM)/ERSTE Foundation , 2022
On 23 June 2022, EU leaders decide on the candidacy of Ukraine and Moldova. This means little if ... more On 23 June 2022, EU leaders decide on the candidacy of Ukraine and Moldova. This means little if the credibility of the EU enlargement process to the Western Balkans is not restored. This papers makes the case that the time to act is now. It explains why and outlines six guiding principles turn a process that is bust into a process that can work to the benefit of both the EU and the Western Balkan countries.
Institute for Human Sciences (IWM), Vienna, 2021
Experts argue that the global scene is set to become increasingly unpredictable. While a crisis i... more Experts argue that the global scene is set to become increasingly unpredictable. While a crisis is a call for action, the EU – faithful to realist conceptions of international relations – seems to have merely muddled through. But will this strategy of reaction be enough in a context of perpetual crisis, unpredictability, and dwindling financial resources?
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Policy Papers by Isabelle Ioannides
The brief concludes by offering recommendations for the EU to recalibrate its democracy promotion strategies under conditions of geopolitical competition and uncertainty. It underlines that effectiveness depends on tailoring approaches to local realities, anticipating risks through foresight and scenario planning, and reinforcing the EU’s credibility as a consistent and strategic actor.
However, the Growth Plan’s effectiveness will hinge on robust implementation and political commitment on both sides. Concerns remain about the enforceability of conditionality mechanisms and the adequacy of the financial support offered, which falls short compared to that of EU member states in Southeast Europe. Success will require not only increased funding and consistent incentives from the EU, but also genuine reform efforts and institutional strengthening within the Western Balkans. Engaging civil society, aligning the plan with the EU’s green and digital agendas, and countering external influence are all essential to ensuring the initiative becomes a meaningful step toward EU enlargement rather than another missed opportunity.
This briefing concludes that the TCA continues to have a stronger impact on the UK than on the EU in the trade relationship. Trade between the EU and the UK continues to be more complex and challenging compared to when the UK was an EU Member State, even if the implementation of the TCA in the last four years has been generally smooth, with some exceptions. The UK has managed to bounce back from COVID and Brexit less successfully than the EU and has, like the EU-27, been affected by Russia's war in Ukraine and inflation. EU-UK trade in goods decreased slightly in 2023 and 2024, and it is still below pre-Brexit levels. EU-UK trade in services (the TCA does not cover financial services), continues to be less disrupted, and surpassed pre-COVID-19 levels as of 2023. At a time of uncertainty on the future direction of trade policy, geopolitical upheaval, and the United States administration's (potential) new tariffs on imports from its trading partners (including the UK and the EU), the TCA offers an opportunity to deepen EU-UK trade relations.
The study first sets the scene, outlining the potential sources of tension in EU-UK relations that hinder the application of the EU-UK TCA. It then examines the EU evaluations of the TCA's implementation at national and regional level,while also presenting experts' views on how the agreement has been performing. The study also providesa longitudinal and visual analysis of EU-UK trade flows to explain the changes and continuities observed. It then analyses the European Parliament's scrutiny of the EU-UK TCA. It concludes by charting the possible paths for enhancing the
performance of the EU-UK TCA,so that it can contribute to building trust between the two parties.
and rendered the Turkish Cypriots more dependent on Turkey. Thirdly, the role of the so-called motherlands – Greece and Turkey – has played out differently in each the RoC and the Turkish Cypriot community. Fourthly, and of most concern, migration is being instrumentalised across the dividing Green Line while the changing demographic patterns illustrate how Greek and Turkish Cypriots are increasingly drifting apart. The paper puts forward a number of recommendations, including strengthening reconciliation efforts at the civil society level and instigating trade links between the two sides, even by sharing the profits from the exploitation of hydrocarbons. It also urges that the West should play a more decisive role in the Cyprus negotiations before the chances of a settlement that reunites the island dissipate.
The first part of the study, written internally, provides an institutional perspective of the implementation of the Guidelines. It assesses the development of the EU framework to support human rights defenders, including EU Member States' emergency measures, and evaluates the coordination of such efforts. It also examines the European Parliament's support for human rights defenders and considers its impact on the EU's overall work on defender protection.
The second part of the study, which was outsourced, evaluates the
implementation of the Guidelines from a bottom-up perspective. It provides an evidence-based analysis of how EU missions apply the Guidelines in countries where rights and freedoms are particularly challenged for human rights defenders, and assesses when and why the measures have not been applied.
The study also addresses ways in which implementation gaps can be bridged and recommends possible measures and action that could be taken to ensure the protection of human rights defenders.