EU-CELAC Summit: How to move from pragmatism to a real alliance?

Guilherme Pereira Tavares
Nov 9
9 min read

**European and Latin American leaders gathered in a modern room during a diplomatic summit.**

The meeting scheduled for November in Santa Marta, Colombia, between the European Union (EU) and the Community of Latin American and Caribbean States (CELAC) will be more than just a formality. It will be a true test: will Europe and Latin America be able to transform years of pragmatism into an alliance that truly responds to common priorities and the challenges of the 21st century? In a world pressured by illiberalism, geopolitical tensions, and economic protectionism, this dialogue takes on decisive importance.

The upcoming EU-CELAC Summit could redefine the collective destiny of the regions.

We began this analysis by understanding that, behind the official statements and impressive numbers, there is a disconnect between discourse and practice that can only be overcome through concrete progress, improved political coordination, and the valuing of shared interests, with respect for diversity and local realities.

Behind the scenes in Brussels and the difficult reinvention of the partnership.

When EU and CELAC leaders met in Brussels in July 2023, after eight years of high-level silence, there was a great deal of expectation in the air. On both sides, there was a clear understanding: the long pause needed to be overcome. However, the reunion was not a return to the past, nor a firm commitment to values, but rather a practical adjustment based on converging interests, such as the energy transition and the ultra-connected economic digitalization.

Despite this, we experienced a sense of déjà vu. It became evident that CELAC, with its intergovernmental nature, still struggles to articulate common positions. This was especially apparent when we addressed the crisis in Venezuela and, particularly, during the heated debate on the war in Ukraine, which resulted in a rather weak final declaration. The concern, in this case, was to keep the doors of dialogue open, even at the cost of achieving robust consensus.

On the European side, there was a clear diversification strategy: sometimes establishing inter-regional agreements (such as with Mercosur), sometimes deepening bilateral relations (with Mexico and Chile). Since then, significant progress has been made. The signing of the EU-Mercosur agreement, which was under negotiation for 25 years, symbolizes a new era of trade liberalization, guaranteed access to strategic raw materials, and the inclusion of clauses to promote local value.

Furthermore, the modernized agreements with Mexico and Chile brought benefits such as tariff cuts, anti-corruption mechanisms, incentives for sustainable regional development, and encouragement for Latin American participation in global value chains.

The revolving door of pragmatism: speeches vs. actions at the EU-CELAC Summit

In recent years, EU initiatives, notably the Global Gateway , have gained prominence as a new promise of billions of dollars in investment for Latin America, fundamentally aimed at decarbonizing economies. However, persistent criticism, based on data from Oxfam ( OXFAM International. A New Framework in EU-Latin America Relations, 2023 ), is that these actions largely reflect priorities on the European side.

82% of the Global Gateway's global resources have been committed to green energy and digitalization projects.
Only 16% was allocated to health and education.
There is a strong concentration of funds in a few countries, especially Brazil.

More concerning, however, is the use of existing funds instead of creating new financial flows. According to a consolidated report by Counter Balance, Eurodad, and Oxfam ( Oxfam International et al., Monitoring the Implementation of the Global Gateway, 2024 ), there is a lack of transparency in the project selection criteria and little effective participation of Latin American actors in the decision-making process.

The difference between saying and doing can undermine trust and the transformative potential of the partnership.

Pending practical proof, the Global Gateway remains a testing platform. We will only move forward if Latin American countries can shape the projects from the outset, and not just receive "ready-made" investments.

The international context and the perfect storm at the EU-CELAC Summit

Preparations for this year's Summit are taking place under the impact of several changes that are drastically altering the international environment. The possible return of Trump to the US presidency is forcing Europe to recalculate its external alliances. In practice, this means reviewing its approach to traditional partners such as Latin America, given uncertainties about the future of transatlantic relations.

In the Southern Hemisphere, political divisions are intensifying, driven by recent electoral cycles and the influence of the Trumpist model in the Americas. Responses vary: some countries flirt with the illiberal agenda; others attempt to broaden resistance to foreign interference or assert new forms of nationalism.

We have been following this scenario in previous analyses (the role of the MAGA model and its effects on the region). It is clear that CELAC, simultaneously an integration body and a stage for divisions, needs to reinvent itself to be more than just a consultative forum.

Given this delicate context, the Summit in Santa Marta will also be a space for experimentation, to see if it is possible to move beyond defensive strategies and find real points of convergence.

Green interregionalism: a concrete opportunity?

One area where diplomatic pragmatism can be overcome is the energy transition. Here, so-called "green interregionalism," based on multilateral dialogue and joint projects to address climate change, emerges as a new vector for cooperation.

However, we need to be critical: without the active participation of Latin American countries, there is a risk of repeating past patterns, in which Latin America becomes merely a supplier of raw materials to industrial chains from outside the region.

Renewable energy projects should include technology transfer.
Mechanisms for training local labor are essential in clean energy supply chains.
Joint policies need to protect affected communities and ensure social sustainability.

The Colombian presidency of CELAC, even marked by internal challenges faced by Gustavo Petro, could propel a new cycle in this direction. Colombia's mediating role could be decisive in setting the agenda for Latin American demands on the common agenda and highlighting the commitment to sustainable development.

True cooperation will only exist if there are mutual gains for the populations on both sides of the Atlantic.

The issue of representation: why does CELAC still face obstacles?

In practice, CELAC still proves insufficient to articulate robust and autonomous positions on the international stage. This challenge became evident during the recent Venezuelan crisis, when the collective inability to act in the face of external geopolitical pressure changed the course of negotiations, and the same occurred with the disagreements over Ukraine.

The absence of a unified voice hinders assertive responses and multiplies obstacles to dialogue with the EU, whose institutions are more integrated and efficient in formulating positions. This indicates that, to move beyond pragmatism, a profound reform of Latin American integration mechanisms is necessary.

Seeking minimum consensus to ensure representation.
Greater autonomy from external influences, whether from the US, China, or Europe.
Promoting a common identity without diluting national diversity.

These issues make the Santa Marta agenda even more relevant to CELAC's role as a Latin American voice in the world.

Paths to escape pragmatism: pillars of a true alliance

We then moved on to reflect on the elements that could elevate the EU-CELAC relationship from a tactical arrangement to a true strategic alliance.

Transparency and co-leadership: Global Gateway projects and similar initiatives need to meet local demands, with transparency regarding the sources, criteria, and beneficiaries of the resources.
Effective participation: Latin American countries should be included in all stages, from planning to execution, of major investments.
Diversification of agendas: In addition to the environmental and digital pillars, it is necessary to make room for topics such as migration, food security, combating organized crime, and cooperation in health.
Links with regional initiatives: Encouraging intra-Latin American integration and promoting spaces for genuine dialogue, capable of also strengthening the region's voice in the international system.

Our studies suggest that only with a multipolar and participatory structure will it be possible to truly move forward together. Latin America needs to stop being seen merely as a "potential partner" and be treated as a co-author of global projects.

Criticisms of the Global Gateway: inconsistencies and risks

If we look closely at the reports from the aforementioned organizations, we can see several sensitive points regarding the management of the Global Gateway:

Centralization in Europe: The selection of projects is largely in the hands of European institutions.
Difficulties in accessing information: Governments, civil society, and even Latin American companies have limited access to the details and requirements of the calls for proposals.
Low local participation: In many key projects, of the 134 announced in 2023, only 11% had predominantly Latin American participation in the formulation stages ( Oxfam International, 2024 ).
Promoting European economic/geopolitical interests: Priority projects are chosen based on the security of supply of critical minerals, energy, and the opening of markets for European companies.

These limitations call into question the transformative nature of the Global Gateway. Without increasing transparency and committing to shared governance, the initiative risks repeating asymmetrical patterns, many of which were experienced in the colonial and republican past.

For a more in-depth look at the risks of an investment agenda that does not engage with Latin American interests, we recommend the analysis “MAGA Globalization and Silent Recolonization” ( more detail s ).

Themes beyond the energy transition

Focusing solely on green energy and digitalization is not enough. Uncontrolled migration, the rise of organized crime, food insecurity, and public health crises remain urgent issues for Latin American societies.

The absence of these fundamental issues at the forefront of EU-CELAC discussions often creates the impression that "the real problems" are not on the table. A multi-thematic dialogue, incorporating the real demands of countries in the Global South, can renew trust and broaden the legitimacy of the alliance.

For those who wish to delve deeper into these dynamics, we suggest following our discussion on strategic partnerships in the Americas and new global landscapes .

Colombia as a laboratory?

The Colombian presidency of CELAC, which hosts the Summit, is marked by an interesting duality: while President Gustavo Petro faces internal political turmoil, the country serves as an important link between South America, the Caribbean, and Europe.

The Colombian government aims for a leading role by advocating for a just energy transition and placing the environment at the center of the agenda. In any case, it is expected that Colombia will be able to consolidate a leadership role, allowing CELAC to voice its own positions and move beyond simply responding to external initiatives.

What we have learned from different Latin American experiences inspires the debate for Santa Marta: it is necessary to untie the knots of integration and transform CELAC into an active vector for consultation, decision-making, and implementation of regional policies.

Reflections for a new EU-CELAC alliance

Analyzing the recent trajectory, we conclude that real progress will only be achieved if the partnership moves beyond slogans and focuses on the effective priorities of society. This involves:

Adoption of clear commitments to social inclusion, combating corruption, and institutional strengthening;
Increased participation of civil society and subnational actors;
Greater focus on education and health, not just as "add-ons," but as central pillars of development;
Establishing mechanisms for independent monitoring of funded projects.

Paths beyond pragmatism: recommendations

Based on recent data and direct observations, we have compiled recommendations to transform the reunion in Santa Marta into the beginning of a more mature phase:

To build shared decision-making platforms, with proportional participation from both sides.
To adopt a flexible approach to dealing with political differences, without sacrificing fundamental historical values.
Include key Latin American issues on the agenda, instead of merely reacting to Eurocentric priorities.
To stimulate new mechanisms for Latin American regional integration, so that CELAC can play a more prominent role.
To independently monitor and oversee investments, ensuring that they promote innovation and inclusion.

The future of the EU-CELAC relationship depends on the balance between national and regional interests and the expectations of their people.

Conclusion: Was the dome of Santa Marta a watershed moment?

What is at stake in Santa Marta goes beyond official statements. The global context demands a robust response to external pressures and opens a window for a new engineering of alliances. The EU must acknowledge that Latin American development should not be merely an accessory to its strategies, but a central purpose. The American hemisphere also needs to strengthen its own integration mechanisms to engage in dialogue on equal terms.

If the Santa Marta Summit translates commitments into action, we will see the beginning of a new cycle. If it repeats the same patterns, it will only be another missed opportunity in times of urgency.

Unity and leadership: that is the demand of our time.

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