POLICY BRIEF September 2025 REFRAMING EU-AU MIGRATION GOVERNANCE: BRIDGING DIVERGENCE THROUGH PRAGMATIC COLLABORATION ABSTRACT Migration governance is a central concern of the partnership between the African Union(AU) and the European Union(EU), and yet it remains a source of tension and misalignment. While migration presents an opportunity to advance shared socioeconomic priorities, diverging perspectives have hindered coherent cooperation between both blocs. The EU continues to frame migration largely through security, border control and policies of return from Europe to Africa, overlooking the reality that most African migration occurs within the African continent and via regular channels. In contrast, the AU emphasises migration as a driver of development, regional integration and human mobility rights. The divergence in these approaches is compounded by fragmented African positions, as individual states often pursue bilateral agreements with their EU counterparts, weakening AU coherence and bargaining power. Simultaneously, EU policymaking is frequently shaped by political symbolism and anti-migrant sentiment rather than evidence, leading to misaligned priorities and missed opportunities. This Policy Brief calls for pragmatic collaboration that bridges divergences, empowers African agency, and fosters rights-based, development-oriented migration governance. AUTHORS LUKMON AKINTOLA Knowledge Associate, Global Centre for Climate Mobility STEFFEN ANGENENDT Co-founder and Partner, Migration Experts Group IN PARTNERSHIP WITH

Policy Brief published in September 2025 by FOUNDATION FOR EUROPEAN PROGRESSIVE STUDIES(FEPS) European Political Foundation- Nº 4 BE 896.230.213 Avenue des Arts 46 1000 Brussels(Belgium) www.feps-europe.eu @FEPS_Europe FRIEDRICH-EBERT-STIFTUNG(FES) EUROPEAN UNION& GLOBAL DIALOGUE| BRUSSELS OFFICE Rue du Taciturne 38 1000 Brussels(Belgium) www.brussels.fes.de @FES_Europa FRIEDRICH-EBERT-STIFTUNG AFRICAN MIGRATION POLICY CENTER Yeka Subcity, Woreda 05, Block No.03, House No. 109 Addis Ababa, Ethiopia https://ampc.fes.de/index.html X: https://twitter.com/fes_ampc FONDAZIONE SOCIALISMO ETS Via Santa Caterina da Siena, 57 00186 Rome(Italy) www.fondazionesocialismo.it This policy brief was produced with the financial support of the European Parliament. It does not represent the view of the European Parliament. Copyright© 2025 by Foundation for European Progressive Studies, Friedrich-Ebert-Stiftung, Fondazione Socialismo Ets Project Coordination: Hedwig Giusto(FEPS), Julia Wild(FEPS), Tobias Beylat(FES), Susanne Stollreiter(FES), Bruck Negash Teame(FES), Abebaye Asrat(FES) Copy editing: Francis Wade Design: Triptyque Cover photo: European Union Legal deposit registration number: D/2025/15396./29 ISBN number: 978-2-39076-034-4 Suggested citation Akintola, L; Angenendt S.(2025)."Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration". Policy Brief, Foundation for European Progressive Studies, Friedrich-Ebert-Stiftung and Fondazione Socialismo, Brussels.

TABLE OF CONTENTS Understanding the context...................................................................................................................................... 4 Key challenges and recommendations.......................................................................................................... 4 Challenge 1: Policy and narrative mismatch between EU and AU........................................ 4 Challenge 2: Asymmetrical power and fragmentation in AU representation............... 5  3: EU’s lack of evidence-based policymaking and disproportionate focus on Africa................................................................................................................... 6 Conclusion............................................................................................................................................................................. 7 Endnotes................................................................................................................................................................................ 8 About the authors............................................................................................................................................................ 9 About FEPS........................................................................................................................................................................ 10 About Foundation for European Progressive Studies, Friedrich-Ebert-Stiftung and European Policy Centre, Brussels.................................................. 10 About Fondazione Socialismo ETS...................................................................................................................... 11 About the Progressive Migration Group(PMG).......................................................................................... 11

Understanding the context The European Union(EU) and African Union (AU) have divergent views on migration, making it a challenge to develop coherent migration governance for both blocs. Yet migration presents a unique opportunity to address shared socio-economic challenges and advance the developmental priorities for both regions. Bridging these differences would allow both unions to establish a common ground for a more pragmatic and mutually beneficial collaboration. " Even though most migration from Africa to Europe takes place through regular and legal channels, and while more than 80% of African migration happens within the African continent, the EU continues to frame its migration relations with Africa primarily through the lens of irregularity and border control." " Migration remains a central yet increasingly divisive and contentious issue in Africa–Europe relations. Even though most migration from Africa to Europe takes place through regular and legal channels, and while more than 80% of African migration happens within the African continent, the EU continues to frame its migration relations with Africa primarily through the lens of irregularity and border control. 1 The EU increasingly prioritises externalisation and returns over regularising and simplifying legal migration pathways, despite its changing demographic trends and the need for workforce enlargement. This illustrates the discrepancy between the prevailing EU migration policies and the actual migration dynamics on the ground. The AU, by contrast, sees migration as a developmental force, closely linked to socio-economic transformation, regional integration and human mobility rights. These contrasting migration priorities between the AU and the EU signal diverging interests between the two regions and are increasingly impacting meaningful collaboration. The current geopolitical landscape, marked by the rise of multipolarity, nationalism, and eroding multilateralism, further undermines this cooperation. The EU’s shift toward securitised and restrictive migration practices contrast sharply with AU’s rights-based and development-oriented vision. In this complex environment, the need to align interests and craft realistic, mutually beneficial strategies is urgent. Key challenges and recommendations Challenge 1: Policy and narrative mismatch between EU and AU The EU’s migration policy is increasingly shifting from a development-focused agenda to a predominantly security-driven framework, focusing on reducing irregular arrivals, bolstering returns and externalising migration control. The EU is also increasingly restricting legal migration options by rejecting a high percentage of Schengen visa applications from Africa, resulting in African applicants losing approximately €60 million in visa application fees in 2024. 2 These gestures contrast with the AU’s emphasis on stabilising regular pathways, improving remittance flows, and leveraging migration as a catalyst for structural transformation and cross-border partnerships. 4 Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration

Addressing Challenge 1: •	 F ocus on mutually beneficial issues such as diaspora engagement, skills mobility and post-study work visas, which enjoy relative consensus between both blocs.  existing migration compacts to advance people-centred approaches. At the same time, state-to-state coordination should be enhanced, while civil society and local authorities should be empowered to ensure protection, equity, and meaningful integration.  EU funding and dialogue frameworks (for example, Rabat and Khartoum Processes) on sustainable, rights-based migration programmes, not only returns and readmission.  practice warning: Purely bilateral migration deals focused on return(for example, between individual EU member states and African countries) have shown limited success and have often compromised human rights, social protection standards and public trust, leading to poorly managed migration. Challenge 2: Asymmetrical power and fragmentation in AU representation The AU is yet to have a coherent voice in its migration relations with the EU. Some African member states are continuously pursuing their national interests through engaging in bilateral agreements with the EU and individual EU member states. The diverging interests among African member states undermine the AU’s migration policies agenda and diminish the continent’s regional integration efforts, as evidenced in the limited ratification of the AU Free Move ment Protocol. Many member states are putting their national interests ahead of the region’s migration agenda. The fragmented African positions also weaken collective bargaining power, enabling EU actors to sidestep regional frameworks in favour of bilateral deals that often reflect EU interests more than African needs. Diverging interests among member states with regards to migration weakens the AU’s institutional capacity and legitimacy in negotiations, and allows the EU to exploit divisions and push return/ readmission-focused and externalisation policies. Addressing Challenge 2:  a coherent migration agenda and priorities among AU member states, thereby giving the AU Commission(AUC) the legitimacy to engage meaningfully with its European counterparts in a unified, rather than fragmented, way. This coordination should involve engaging all relevant bodies within the AUC working on migration governance, AU member states, Regional Economic Communities(RECs) and non-state actors, such as civil society, the private sector, city mayors and other relevant stakeholders.  technical and financial resources for all relevant bodies within the AUC working on migration governance to enable them to coordinate member state positions and strengthen negotiation capacity, while also embracing a pragmatic approach to the union’s migration strategies.  peer learning and intra-African dialogues(for example, through RECs) to harmonise migration priorities across member states.  Promote ratification of the Free Movement Protocol by engaging high-level political leaders and addressing bureaucratic and sovereignty concerns through tailored advocacy and evidence-based dialogue. Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration 5

greater EU support for strengthening AU institutions and RECs in Africa through supporting Africa’s developmental priorities, enabling knowledge exchange, and enhancing implementation of regional frameworks.  practice: The Joint Labour Migration Programme(JLMP), jointly developed in 2015 by the AUC, the International Labour Organization(ILO), the International Organization for Migration(IOM) and the Economic Commission for Africa(ECA), and funded by the Swiss Agency for Development and Cooperation(SDC) and the Swedish International Development Cooperation Agency(Sida), offers a platform to coordinate and align national policies around a continental vision of labour mobility. Challenge 3: EU’s lack of evidence-based policymaking and disproportionate focus on Africa Despite data showing that African migration to Europe is predominantly regular and relatively minor compared to migration from other regions, such as the Near East, Latin America, or Asia, EU debates remain overly focused on Africa, emphasising border control and anti-migrant sentiments. Migration policy decisions are increasingly shaped by political symbolism rather than facts and data, resulting in negative narratives around African migrants. This reflects rising anti-migrant sentiment and populism in Europe, despite the fact that the EU needs migrants to realise aspects of its development agenda, such as labour supply, demographic sustainability and skills exchange. One outcome of the EU’s disregard for data and evidence when it comes to African migration is that funding is misallocated and policy attention is misdirected. In addition, the EU’s disproportionate focus on Africa is causing stigmatisation of African migrants and overlooking their contributions to both host and home countries. More importantly, the EU’s approach is resulting in missed opportunities to build sustainable migration systems based on actual demographic and labour market needs. Addressing Challenge 3:  in joint data collection and migration observatories to provide objective statistics on African migration flows, as well as reliable empirical findings on the dynamics, driving forces and effects of migration on migrants themselves. More surveys, such as those conducted by the Mixed Migration Center, are necessary. 3  EU-based messaging campaigns with African diaspora voices, civil society organisations, trade unions, and academics to challenge distorted narratives.  both traditional and new media to promote evidence- and value-based migration narratives in Europe, while also countering disinformation and anti-migrant narratives.  African migration within broader global mobility trends, highlighting Africa’s role as both a source of, and destination for, mixed migration movements, instead of focusing on irregular movements to Europe. 6 Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration

Conclusion Migration governance between the AU and EU is at a crossroads. Fragmentation of African positions, diverging political narratives, and evidence-deficient policymaking at the EU and AU level have hampered progress. However, there are still viable paths forward – particularly around labour mobility, regional integration and pragmatic cooperation. " Both the EU and AU must ensure migration policy is informed not only by data but also by principles of justice, dignity, and development. " To seize these opportunities, the AU must be empowered, including through structured and formalised coordination mechanisms between the various bodies currently addressing migration, to act as a legitimate interlocutor on behalf of its member states and RECs. The EU, meanwhile, must recommit to a genuine partnership grounded in honesty and shared benefit. Both parties must ensure migration policy is informed not only by data but also by principles of justice, dignity, and development. Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration 7

Endnotes 1  International Organization for Migration(2020) Africa Migration Report: Challenging the Narrative. 2  Madowo, L.(2025)"Africans lost nearly$70M to denied visas applications to Europe in 2024". CNN, 21 May 2025. 3 Mixed Migration Center 8 Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration

About the authors Lukmon Akintola Lukmon Akintola is a researcher and policy advisor with more than eight years’ experience working at the intersection of climate change, human security, migration and inclusive governance. Over the years, he has conducted policy-focused research and implemented project activities across several African countries. Akintola currently serves as a Knowledge Associate at the Global Centre for Climate Mobility, where he is supporting the Africa Climate Mobility Initiative(ACMI) Deep Dive project in West Africa, Botswana, Burundi, Egypt, and Liberia. He is also a member of the coordinating team of the African Non-State Actors Platform on Migration and Development, where he serves as the focal point on climate mobility. Akintola previously worked as a program associate at Friedrich Ebert Stiftung – Nigeria, and has consulted for several international organisations, including UNICEF, Friedrich Ebert Stiftung - Geneva, European Partnership for Democracy, Save the Children and APCO Worldwide. He holds a master’s degree in Politics and International Relations from Peking University, China. Steffen Angenendt Steffen Angenendt is a co-founder and partner at the consulting firm Migration Experts Group(MEG, www.migrationexperts. ch) in Bern. From 2006 to 2024, he was a senior fellow at the German Institute for International and Security Affairs(SWP) in Berlin, where he led the Global Issues Department. From 2011 to 2013, he was seconded to the Federal Ministry for Economic Cooperation and Development(BMZ). Prior to joining SWP, Dr Angenendt led the International Migration Programme at the German Council on Foreign Relations(DGAP), where he was also editor-in-chief of the Yearbook of International Politics. He has also worked for several German Federal Government commissions. He is the author of over 250 publications on German, European, and international asylum and migration policy, and has provided advisory services to various EU and non-EU governments, as well as to numerous national and international organisations, including UNHCR, UNICEF, ICRC, IOM, ICMPD, World Bank, African Development Bank, European Commission, and the Global Forum on Migration and Development (GFMD). He has taught political science and political sociology at the Free University and Humboldt University in Berlin, as well as at the University of Vienna. Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration 9

About FEPS The Foundation for European Progressive Studies(FEPS) is the think tank of the progressive political family at EU level. Its mission is to develop innovative research, policy advice, training and debates to inspire and inform progressive politics and policies across Europe. FEPS works in close partnership with its 77 members and other partners – including renowned universities, scholars, policymakers and activists – forging connections among stakeholders from the world of politics, academia and civil society at local, regional, national, European and global levels. European Political Foundation- No 4 BE 896.230.213 Avenue des Arts 46, 1000 Brussels(Belgium) www.feps-europe.eu @FEPS_Europe About the Friedrich-Ebert-Stiftung(FES) European Union& Global Dialogue| Brussels office The EU Office of the Friedrich-Ebert-Stiftung(FES), with its headquarters in Brussels and activities in Brussels and Strasbourg, was opened in 1973. It participates in the European integration process, backs and accompanies the interests of the Federal Republic of Germany in Europe and contributes to shaping the external relations of the European Union. As an agency of dialogue, education and consultancy, the Friedrich-Ebert-Stiftung thereby fulfils its special role as a‘political network organisation’ for and with the various European institutions. The Friedrich-Ebert- Stiftung's European and worldwide network facilitates political, economic, social and environmental dialogue between Germany and Europe, within Europe and between Europe and the rest of the world and also at global level. Rue du Taciturne 38 1000 Brussels(Belgium) www.brussels.fes.de @FES_Europa About the Friedrich-Ebert-Stiftung(FES) African Migration Policy Center The Friedrich-Ebert-Stiftung African Migration Policy Center(FES-AMPC) in Addis Ababa, established in 2019, facilitates migration dialogue among AU member states, migration experts and civil society organisations on the African continent. Focusing on four thematic areas, FES AMPC works with African and European stakeholders on EU-Africa dialogue, climate mobility, migration and development, as well as gender and migration. Yeka Subcity, Woreda 05, Block No.03, House No. 109 Addis Ababa, Ethiopia X: https://twitter.com/fes_ampc https://ampc.fes.de/index.html 10 Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration

About Fondazione Socialismo Ets Fondazione Socialismo ETS(Socialism Foundation ETS) was founded in Rome by a group of political activists and intellectuals led by Gennaro Acquaviva. The Foundation aims to preserve the historical memory of the collective experience of Italian socialists in the twentieth century, while simultaneously encouraging political education for younger generations and social and political research on current issues. The Foundation works closely with universities and trade unions in particular, and it publishes reflections and analyses on a variety of themes, including how Catholics integrate into Italy’s progressive movement and how multireligious and multicultural Italian society is developing. Italian legislation has recognised it as a Non-Profit Organisation since 2022. Via Santa Caterina da Siena, 57 00186 Rome(Italy) www.fondazionesocialismo.it www.facebook.com/FondazioneSocialismoEts About the Progressive Migration Group(PMG) The Progressive Migration Group(PMG), a network of African and European migration experts established by FEPS and the Friedrich-Ebert-Stiftung, examines the complex relations between the European Union and African countries of origin and transit with the aim of proposing innovative policy recommendations for progressive forces at EU, AU and national level in the field of migration management and related policy areas. The members of the group contributed to this policy brief. Learn more about the PMG here. Reframing EU-AU migration governance: Bridging divergence through pragmatic collaboration 11

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