Over the past three decades, interregional dynamics between the European Union (EU) and Central Asia have undergone a fundamental structural evolution, transitioning from diplomatic recognition and assistance-oriented cooperation into a comprehensive strategic partnership. Following the collapse of the Soviet Union, the EU began building relations with the newly independent states of Kyrgyzstan in 1991, followed by Tajikistan in 1992, Kazakhstan and Turkmenistan in 1993, and Uzbekistan in 1994 (EUR-Lex). These early steps created the basis for cooperation between the EU and the region. Since then cooperation has expanded not only between EU and individual Central Asian states, but also among the countries themselves. The EU has supported regional cooperation among the five Central Asian countries, with Turkmenistan participating mainly through regional programmes (EUR-Lex).
During the 1990s and early 2000s, relations between the EU and Central Asian states were largely structured around bilateral Partnership and Cooperation Agreements (PCAs) (Matveeva, 2006). These agreements created formal mechanisms for regular cooperation, including Cooperation Councils, committees and specialized subcommittees, human rights dialogues, and interparliamentary exchanges. They provided a framework for sustained political dialogue while supporting cooperation in areas such as trade, investment, and economic development. Over time these institutional arrangements helped broaden EU and Central Asia relations beyond their initial emphasis on development assistance.
A policy shift took place in 2007 with the release of the EU Strategy for Central Asia, which integrated the area directly into Member States’ broader foreign policy objectives and introduced a dedicated Special Representative to maintain ongoing diplomatic momentum (European Commission and High Representative, 2019). This policy was subsequently updated through the 2019 Central Asia Strategy, which prioritized private sector competitiveness, economic diversification, job growth, and integration into international trade networks, while simultaneously expanding cooperation to encompass transport infrastructure, energy reliability, environmental protection, security, and institutional governance (EEAS, 2022; European Commission and High Representative, 2019).
Development cooperation has been another important part of EU – Central Asian relations. The EU has provided financial assistance to support institutional development, education, rural development, governance, rule of law, and human and socioeconomic development (EEAS, 2022). In Kyrgyzstan, EU assistance amounted to €106 million during 2007-2013 and €174 million during 2014-2020, with a focus on education, integrated rural development, and rule of law (EEAS, 2022). For example, the EU’s Integrated Rural Development Programme supported agricultural production, local economic development, and income opportunities for women and youth (European Commission, 2024). In Tajikistan, the EU provided around €231 million between 2014 and 2022, focusing on areas such as healthcare, education, and rural development (EEAS, 2025). EU’s support has strengthened primary healthcare facilities (EEAS, 2025). Security and border management are also important elements of cooperation. For example, the EU is cooperating with Tajikistan to prevent drug trafficking and to stabilize the southern parts of the region bordering Afghanistan (EEAS, 2025).
Interregional commerce has been further accelerated through the EU and Central Asia Economic Forum, launched in Bishkek in late 2021 (EEAS, 2021) and followed by subsequent conventions in Kazakhstan in mid 2023 (EEAS, 2023) and Tashkent in late 2025 to stimulate crossborder investment and improve regional trade conditions (European Commission, 2025). The meetings reflect the increasing importance of economic connectivity, investment, and private-sector engagement within the wider EU and Central Asia relationship.
However, the nature of economic cooperation varies significantly across individual states. Kazakhstan acts as the primary regional partner for European markets, attracting over $200 billion in European foreign direct investment since 2005 (EEAS, 2025). Driven by European demand for Kazakh oil, uranium, and key minerals, both entities established a dedicated alliance centered on critical raw materials, battery supply chains, and green hydrogen, reinforced by an Enhanced Partnership and Cooperation Agreement (EPCA) (EEAS, 2025).
EU relations with Uzbekistan have also expanded significantly. The Partnership and Cooperation Agreement signed in 1996 established the initial framework for bilateral cooperation, while a new Enhanced Partnership and Cooperation Agreement was finalized in July 2022 with the aim of broadening the relationship (EEAS, 2022). Current areas of cooperation include trade and investment, sustainable development, education, environmental protection, agriculture, border management, security, and the rule of law. The EU has also supported Uzbekistan’s efforts to address the environmental consequences of the Aral Sea crisis and its initiatives aimed at strengthening regional connectivity between Central and South Asia (European Commission, 2025). Security cooperation represents another increasingly critical component of the interregional agenda (EEAS, 2023). The regional agenda includes border management, strengthening the capacity of law enforcement institutions, combating drug trafficking and organized crime, counterterrorism, and addressing security challenges associated with Afghanistan. Regional programmes such as the Border Management Programme in Central Asia (BOMCA) and the Central Asia Drug Action Programme (CADAP) have provided practical instruments for cooperation in these areas (EEAS, 2023).
The EU relations with Turkmenistan remain less institutionally developed than those with other Central Asian states. Although the Partnership and Cooperation Agreement (PCA) was signed in 1998, it still has not come into force (EEAS, 2025). At the same time, the EU and Turkmenistan have an annual Human Rights Dialogue, which the EU strongly supports to prevent violations of human rights, promote freedom of speech, and create media transparency. Turkmenistan also has reserves of natural gas, thanks to which both the EU and Turkmenistan signed the Memorandum of Understanding on cooperation in the field of energy in 2008. In 2024, EU exports to Turkmenistan amounted to approximately €700 million, while imports from Turkmenistan reached around €400 million; mineral products accounted for 86% of EU imports from the country. The EU will continue to support negotiations on energy‑related issues with Turkmenistan (EEAS, 2025).
At the political level, institutionalization has accelerated through regular ministerial conferences, parliamentary exchanges, economic forums, and direct summits between leadership. Initial leaders’ meetings in the EU-Central Asia format were held in Kazakhstan in 2022 and in Cholpon-Ata, Kyrgyzstan, in June 2023. A major milestone was reached in April 2025 with the first formal EU-Central Asia Summit at the level of heads of state, held in Samarkand (European Council, 2025). The summit elevated relations between the two regions to a strategic partnership, marking an important new stage in their development. This reflected the gradual transformation of EU-Central Asia cooperation from a relationship centered largely on development assistance and political dialogue into a wider partnership with growing economic, geopolitical, connectivity, and security dimensions.
One of the most sensitive aspects of EU-Central Asia relations is the issue of human rights, democracy, and freedom of the press. Josep Borrell, who served as President of the European Parliament from 2004 to 2007 and later as the EU’s High Representative for Foreign Affairs, highlighted these concerns during his 2021 visit to the region, saying that: “improvements in the field of democracy and human rights are required in order to unlock the potential in our relations” (Borrell, 2021). The EU has continued to raise concerns about restrictions on independent media, freedom of expression, and civil society. For example, in 2024, during its human rights dialogue with Kyrgyzstan, the EU raised concerns about the “shrinking space for civil society”, restrictions on media and freedom of expression, and cases involving journalists from Temirov Life and the closure of Kloop. At the same time, the EU also supports practical programmes in these areas. Its 8 million Rule of Law Programme (2020-2024) promoted human rights and the rule of law across Central Asia, and the 5.5 million Civil Society Facility, launched in 2024, supports civil society and youth participation (Borrell, 2021).
Consequently, the EU-Central Asia relations operate through a combination of regional and bilateral frameworks. The regional dimension provides mechanisms for addressing common and crossborder priorities, including transport connectivity, environmental sustainability, security, economic integration, digital transformation, and sustainable development. At the same time, bilateral agreements and institutional mechanisms allow the EU to adapt its cooperation to the specific priorities and situation of individual Central Asian countries.
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