Astana Open Dialogue presents the article “EU–Kazakhstan Cooperation: A Strong and Sustainable Partnership” by a representative of the European External Action Service (EEAS).
The author of the publication is Luc Devigne, Director for Russia, the Eastern Partnership, Central Asia, and the OSCE, and Deputy Managing Director for Europe and Central Asia at the European External Action Service (EEAS).
The author of the publication is Luc Devigne, Director for Russia, the Eastern Partnership, Central Asia, and the OSCE, and Deputy Managing Director for Europe and Central Asia at the European External Action Service (EEAS).
EU-Kazakhstan cooperation: a strong and enduring partnership
Since Kazakhstan’s independence in 1991, the relationship between the EU and Kazakhstan has gone from strength to strength, building a strong partnership based on mutual respect and trust.
Bilaterally, an important milestone was the signing in 2015 (which entered into force in 2020) of the Enhanced Partnership and Cooperation Agreement (EPCA) between EU and its Member States and Kazakhstan [1] , the first of its kind with a Central Asian country, bringing bilateral relations to a new level. The EPCA strengthened cooperation in key policy areas such as trade and investment, justice and home affairs, energy, transport, environment and climate change, employment and social affairs, culture, education and research.
Regionally, the momentum was bolstered by the 2019 EU Strategy on Central Asia [2] and the 2023 Joint Roadmap for Deepening Ties between the EU and Central Asia [3] , adopted by EU and Central Asia Foreign Ministers. This was further solidified on 4 April 2025 at the first-ever EU-Central Asia Summit in Samarkand, where the leaders of the EU and of the five Central Asian states decided to establish a Strategic Partnership between the two regions, marking a qualitative new phase in their relations [4] .
Energy has been a foundational pillar of the EU-Kazakhstan partnership. Kazakhstan is a major energy supplier to the EU, contributing to the diversification of supply sources for the EU markets. On the other hand, major EU-based energy companies invested significantly investments in the Kazakh oil and gas industry. Additionally, Kazakhstan has very large reserves of uranium and is the largest supplier to EU nuclear energy industry, with 21% of the EU uranium demand. The formalisation of EU-Kazakhstan energy relations came firstly with the Memorandum of Understanding on Energy Cooperation, concluded in 2006. The EPCA further recognised the need for enhanced, sustainable and effective cooperation in the field of energy, to ensure energy security, based on principles of mutual interest, reciprocity, transparency and predictability. Within the framework of the EPCA, regular bilateral dialogues on environment and climate change take place under the Subcommittee on Energy, Transport, Environment and Climate Change, allowing for constructive exchanges and concrete cooperation on the matters. Particularly key to EU-Kazakhstan energy cooperation are critical raw materials, essential for the green and digital transition of both sides’ economies. This is why, on 7 November 2022, European Commission President von der Leyen and Prime Minister Smailov signed a Memorandum of Understanding on a Strategic Partnership on Sustainable Raw Materials, Batteries and Renewable Hydrogen Value Chains [5] , ensuring the development of a secure and sustainable supply of raw and refined materials and bringing bilateral cooperation closer. As a result, the European Commission has selected on 4 June the Sarytogan graphite mining project in central Kazakhstan as a strategic project, which will create opportunities for both side [6]
Bilaterally, an important milestone was the signing in 2015 (which entered into force in 2020) of the Enhanced Partnership and Cooperation Agreement (EPCA) between EU and its Member States and Kazakhstan [1] , the first of its kind with a Central Asian country, bringing bilateral relations to a new level. The EPCA strengthened cooperation in key policy areas such as trade and investment, justice and home affairs, energy, transport, environment and climate change, employment and social affairs, culture, education and research.
Regionally, the momentum was bolstered by the 2019 EU Strategy on Central Asia [2] and the 2023 Joint Roadmap for Deepening Ties between the EU and Central Asia [3] , adopted by EU and Central Asia Foreign Ministers. This was further solidified on 4 April 2025 at the first-ever EU-Central Asia Summit in Samarkand, where the leaders of the EU and of the five Central Asian states decided to establish a Strategic Partnership between the two regions, marking a qualitative new phase in their relations [4] .
Energy has been a foundational pillar of the EU-Kazakhstan partnership. Kazakhstan is a major energy supplier to the EU, contributing to the diversification of supply sources for the EU markets. On the other hand, major EU-based energy companies invested significantly investments in the Kazakh oil and gas industry. Additionally, Kazakhstan has very large reserves of uranium and is the largest supplier to EU nuclear energy industry, with 21% of the EU uranium demand. The formalisation of EU-Kazakhstan energy relations came firstly with the Memorandum of Understanding on Energy Cooperation, concluded in 2006. The EPCA further recognised the need for enhanced, sustainable and effective cooperation in the field of energy, to ensure energy security, based on principles of mutual interest, reciprocity, transparency and predictability. Within the framework of the EPCA, regular bilateral dialogues on environment and climate change take place under the Subcommittee on Energy, Transport, Environment and Climate Change, allowing for constructive exchanges and concrete cooperation on the matters. Particularly key to EU-Kazakhstan energy cooperation are critical raw materials, essential for the green and digital transition of both sides’ economies. This is why, on 7 November 2022, European Commission President von der Leyen and Prime Minister Smailov signed a Memorandum of Understanding on a Strategic Partnership on Sustainable Raw Materials, Batteries and Renewable Hydrogen Value Chains [5] , ensuring the development of a secure and sustainable supply of raw and refined materials and bringing bilateral cooperation closer. As a result, the European Commission has selected on 4 June the Sarytogan graphite mining project in central Kazakhstan as a strategic project, which will create opportunities for both side [6]
As Kazakhstan is moving towards a greener and more sustainable economic model, cooperation on green transition has gained prominence, given also the vulnerability of the country and the whole region to the impact of climate change. The World Bank forecasts that temperatures in Kazakhstan will rise at a faster rate than the global average, with severe consequences for water security and related issues. Notably, at the UN Climate Change Conference (COP26) in Glasgow in November 2021, Kazakhstan announced its goal to reduce greenhouse gas emissions by 15% by 2030 and to achieve carbon neutrality by 2060. Climate change requires a global coordinated response and the EU appreciates Kazakhstan’s active role in this regard as well as efforts to strengthen regional cooperation, such as in the context of the International Fund for Saving the Aral Sea (IFAS), supported by the EU. Further to this, the EUR 700M Team Europe Initiative (TEI) on Water, Energy, Climate [7] , one of the Global Gateway flagships of the EU in Central Asia, is a clear illustration of the EU’s support to the region, with a view to improve climate resilience, cooperation, and to ensure a just energy transition in the region. With the announcement of more than EUR 6 billion of investments in the water and energy sector at the EU-Central Asia Summit, the EU has confirmed its role as a leading supporter of the green transition in Central Asia.
While energy used to represent the basis for cooperation, the relations between the EU and Kazakhstan has evolved throughout decades into a whole-encompassing mature and equal partnership. Regular high-level political dialogues, including annual Cooperation Councils at ministerial level, are held to review progress on the commitments set out in the bilateral and multilateral agreements. The EU also supports Kazakhstan’s reform and modernisation process. The EU is instrumental in strengthening the rule of law, democratic governance, and civil society engagement - the very foundations of a functioning democracy and essential for a conducive business climate that attracts foreign investment.
From an economic perspective, Kazakhstan has been developing a solid institutional and policy framework to diversify its economy and enhance its resilience. The country has signalled its interest in greater cooperation with the EU, Kazakhstan’s first trade partner and first foreign investor. However, we must diversify our economic relations even more. In this regard, the Trans-Caspian International Transport Corridor (TCTC) is a project of mutual interest that holds mutual benefits by facilitating trade and investment between Central Asia and the EU. It will provide an alternative to traditional transport routes passing through Russia, increasingly relevant in light of the current geopolitical developments, and ensure mutual market access and long-term cooperation. In particular, as the largest land-locked country in the world, Kazakhstan aims at becoming an important regional transport connectivity hub, and aspires to diversify further transport routes, especially connecting Europe with Asia. Additionally, as 85% of transit containers along the three Eurasian transport corridors pass through Kazakhstan, and transit traffic is projected to increase during the coming decades, the TCTC has become a priority project of cooperation. In this regard, the EU is actively supporting sustainable transport connectivity in Central Asia, with a view to foster a regional approach to connectivity and encourage regional economic development. While trade through the corridor has increased by more than 60% last year, we must further work to remove regulatory and infrastructure bottlenecks to make the TCTC more reliable and competitive. Only a regional coordinated approach can achieve this. EU has accumulated decades of experience of making border crossing efficient.
While energy used to represent the basis for cooperation, the relations between the EU and Kazakhstan has evolved throughout decades into a whole-encompassing mature and equal partnership. Regular high-level political dialogues, including annual Cooperation Councils at ministerial level, are held to review progress on the commitments set out in the bilateral and multilateral agreements. The EU also supports Kazakhstan’s reform and modernisation process. The EU is instrumental in strengthening the rule of law, democratic governance, and civil society engagement - the very foundations of a functioning democracy and essential for a conducive business climate that attracts foreign investment.
From an economic perspective, Kazakhstan has been developing a solid institutional and policy framework to diversify its economy and enhance its resilience. The country has signalled its interest in greater cooperation with the EU, Kazakhstan’s first trade partner and first foreign investor. However, we must diversify our economic relations even more. In this regard, the Trans-Caspian International Transport Corridor (TCTC) is a project of mutual interest that holds mutual benefits by facilitating trade and investment between Central Asia and the EU. It will provide an alternative to traditional transport routes passing through Russia, increasingly relevant in light of the current geopolitical developments, and ensure mutual market access and long-term cooperation. In particular, as the largest land-locked country in the world, Kazakhstan aims at becoming an important regional transport connectivity hub, and aspires to diversify further transport routes, especially connecting Europe with Asia. Additionally, as 85% of transit containers along the three Eurasian transport corridors pass through Kazakhstan, and transit traffic is projected to increase during the coming decades, the TCTC has become a priority project of cooperation. In this regard, the EU is actively supporting sustainable transport connectivity in Central Asia, with a view to foster a regional approach to connectivity and encourage regional economic development. While trade through the corridor has increased by more than 60% last year, we must further work to remove regulatory and infrastructure bottlenecks to make the TCTC more reliable and competitive. Only a regional coordinated approach can achieve this. EU has accumulated decades of experience of making border crossing efficient.
The EU is also increasing cooperation with Kazakhstan in the area of digital connectivity. Kazakhstan plays a leading role in Central Asia on this and is a key partner for the EU’s Team Europe Initiative on Digital Connectivity.
In the field of human rights and participation in multilateral fora, Kazakhstan’s membership in the UN Human Rights Council (2022-2024) was highly significant, placing it in a position to actively participate in the global human rights discourse. Kazakhstan thus played an important and constructive role, marked by an excellent cooperation with the EU. Kazakhstan initiated and led the resolution on domestic violence, which was adopted in October 2024, and adopted important national legislation on gender based violence. The country also co-sponsored, together with Kyrgyzstan, the EU-led resolution on the rights of the child and inclusive social protection. Kazakhstan also helped to maintain a delicate balance between the resolutions on freedom of religion or belief – led by the EU – and combatting religious intolerance. In the context of Kazakhstan’s multi-vector foreign policy, balancing its relationship with major regional and world powers, intensifying cooperation with the EU is of particular importance. The role of the civil society and the media in Kazakhstan is important for further strengthening the Kazakh democratic record. The EU is ready to support Kazakhstan in its continuous efforts to further improve its implementation of the commitments it subscribed to when joining the UN, OSCE and several Council of Europe conventions or declared its intention to join more.
From a regional perspective, Kazakhstan plays an active and key role when it comes to cooperation and stability within Central Asia. Thus, regional leaders meet often and discuss the topics of common interest, which is what the EU, itself a regional player welcomes. Among others, President Tokayev recently proposed the creation of a Central Asian Media Forum and the establishment of a Central Asian media channel, to strengthen mutual understanding, promote regional cooperation, and remove cultural barriers. Kazakhstan driving regional positive force was also recently acknowledge by the UN Member States, which unanimously agreed to establish a UN Regional Center for Sustainable Development Goals (SDGs) for Central Asia and Afghanistan in Almaty.
Kazakhstan’s commitment to a stable international order is illustrated by its frequent reference to the UN Charter and international principles such as territorial sovereignty, especially in the context of Russia’s war of aggression against Ukraine. The EU and Kazakhstan promote jointly a common vision for a just and lasting peace in Ukraine in accordance with the principles of the UN Charter. In this respect, cooperation on preventing sanctions circumvention has become an important aspect of the relationship, with the EU appreciating Kazakhstan’s continued collaboration and engagement.
While the EU and Kazakhstan share vital interests in various fields, they also promote the principle of “United in Diversity”. In the EU, this motto symbolises how Europeans have come together to work for peace and prosperity and are enriched by the continent’s many different cultures, traditions and languages. In Kazakhstan, equally home to a variety of ethnic groups, President Tokayev advocates also mutual respect and peaceful coexistence between the different peoples of Kazakhstan. The projects of educational exchanges such as Erasmus+ [8] or scientific research, in addition to increasing business contacts will further contribute to the people-to-people contacts bringing also the EU and Kazakhstan and the whole Central Asia closer together.
In conclusion, during the last three decades, the EU and Kazakhstan have grown closer, building a solid and mature partnership of choice, based on mutual trust, respect, and solidarity. As stated by President of the European Council, António Costa at the recent EU-Central Asia Summit, “the partnership between the EU and Central Asia is a journey, not a destination. And many more chapters are to be discovered in this long-standing friendship”.
In the field of human rights and participation in multilateral fora, Kazakhstan’s membership in the UN Human Rights Council (2022-2024) was highly significant, placing it in a position to actively participate in the global human rights discourse. Kazakhstan thus played an important and constructive role, marked by an excellent cooperation with the EU. Kazakhstan initiated and led the resolution on domestic violence, which was adopted in October 2024, and adopted important national legislation on gender based violence. The country also co-sponsored, together with Kyrgyzstan, the EU-led resolution on the rights of the child and inclusive social protection. Kazakhstan also helped to maintain a delicate balance between the resolutions on freedom of religion or belief – led by the EU – and combatting religious intolerance. In the context of Kazakhstan’s multi-vector foreign policy, balancing its relationship with major regional and world powers, intensifying cooperation with the EU is of particular importance. The role of the civil society and the media in Kazakhstan is important for further strengthening the Kazakh democratic record. The EU is ready to support Kazakhstan in its continuous efforts to further improve its implementation of the commitments it subscribed to when joining the UN, OSCE and several Council of Europe conventions or declared its intention to join more.
From a regional perspective, Kazakhstan plays an active and key role when it comes to cooperation and stability within Central Asia. Thus, regional leaders meet often and discuss the topics of common interest, which is what the EU, itself a regional player welcomes. Among others, President Tokayev recently proposed the creation of a Central Asian Media Forum and the establishment of a Central Asian media channel, to strengthen mutual understanding, promote regional cooperation, and remove cultural barriers. Kazakhstan driving regional positive force was also recently acknowledge by the UN Member States, which unanimously agreed to establish a UN Regional Center for Sustainable Development Goals (SDGs) for Central Asia and Afghanistan in Almaty.
Kazakhstan’s commitment to a stable international order is illustrated by its frequent reference to the UN Charter and international principles such as territorial sovereignty, especially in the context of Russia’s war of aggression against Ukraine. The EU and Kazakhstan promote jointly a common vision for a just and lasting peace in Ukraine in accordance with the principles of the UN Charter. In this respect, cooperation on preventing sanctions circumvention has become an important aspect of the relationship, with the EU appreciating Kazakhstan’s continued collaboration and engagement.
While the EU and Kazakhstan share vital interests in various fields, they also promote the principle of “United in Diversity”. In the EU, this motto symbolises how Europeans have come together to work for peace and prosperity and are enriched by the continent’s many different cultures, traditions and languages. In Kazakhstan, equally home to a variety of ethnic groups, President Tokayev advocates also mutual respect and peaceful coexistence between the different peoples of Kazakhstan. The projects of educational exchanges such as Erasmus+ [8] or scientific research, in addition to increasing business contacts will further contribute to the people-to-people contacts bringing also the EU and Kazakhstan and the whole Central Asia closer together.
In conclusion, during the last three decades, the EU and Kazakhstan have grown closer, building a solid and mature partnership of choice, based on mutual trust, respect, and solidarity. As stated by President of the European Council, António Costa at the recent EU-Central Asia Summit, “the partnership between the EU and Central Asia is a journey, not a destination. And many more chapters are to be discovered in this long-standing friendship”.
Since June 2016, Luc Devigne has held the position of Director for Russia, the Eastern Partnership, Central Asia, and the OSCE, as well as Deputy Managing Director for Europe and Central Asia at the European External Action Service (EEAS). Since joining the Directorate-General for Trade of the European Commission in 1996, he has held various positions in the fields of trade defense, the aerospace industry, intellectual property, public procurement, market access, energy, raw materials, and regional policy concerning Europe, Turkey, Russia, and Central Asia. Prior to that, he worked as a banker in corporate finance and mergers and acquisitions, participating in international negotiations in the United States, Brazil, China, and Japan. He holds an LL.M. degree, a diploma in financial analysis, and a specialization in economic law.