•it a 
-tr -to COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 27 05.1997 
COM(97) 239 final 
COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL, THE EUROPEAN PARLIAMENT 
AND THE COMMITTEE OF THE REGIONS 
on Cross-border Cooperation within the framework of the Tacis 
programme 

1. Context 
1.1 The purpose of this Communication is to outline the Commission's policy towards 
cross-border cooperation within the Tacis programme until 1999. The European 
Community has long recognised the importance of cross-border cooperation. The 
development of cross-border cooperation between the Newly Independent States (NIS) and 
the EU and the countries of Central and Eastern Europe (CEEC) has become of increasing 
importance in recent years. This follows the introduction of a common border with the NIS 
following Finland's accession to the EU, the increased importance of the Baltic Sea Region 
in the enlarged EU and the development of the eastern borders of the CEECs as they 
prepare for accession. At the initiative of the European Parliament, a new budget line was 
created specifically for this purpose in 1996. 
1.2 A key factor behind the reinforcement of cross-border cooperation in this region is 
the need to ensure stability on the common EU/NIS border. The difference in living 
standards on either side of the border is extreme. As a result reinforcement of cooperation 
between the communities on either side of the border, laying the foundation for sustainable 
economic and social development, is seen as a priority. While facilitating bilateral links, the 
development of effective border control is also important. 
1.3 In 1996 the European Parliament proposed the need for the coordination of the 
Tacis and Interreg programmes as a cross-border instrument on the Finnish-Russian 
border1. The Committee of the Regions stressed the need to involve the border regions in 
the planning and implementation of cross-border cooperation measures2. Furthermore it 
was proposed to integrate Russian local and regional authorities into the Baltic Sea 
cooperation programme in the same manner as authorities in the CEECs3 
1.4 Tacis cross-border cooperation can also contribute to the pre-accession process in 
the CEECs. Firstly, through complementary funding for border-crossing facilities to 
address the increasing concern which has arisen about the adequacy of the eastern CEEC 
borders. Secondly, through the promotion of cross-border relations, particularly where 
there are minorities, such as in Baltic States, to help improve the stability of border regions. 
1 Resolution of the European Parliament of 19.1.1996 on the Commission Communication on the 
allocation of funds and the implementation of Community Initiatives in Austria, Finland and Sweden -
COM(95)0123 - A4-0328/95 
2 Opinion adopted by the Committee of the Regions on 12 June 1996 on "The Northern Dimension of the 
European Union and Cross-border Cooperation on the Border between the European Union nad the 
Russian Federation and in the Barents Region". 
3 Opinion of the Committee of the Regions of 13 November 1996 on "Current and future EU policy on 
the Baltic Sea region with specific reference to local and regional aspects". 
X 3 
1.5 Support for cross-border cooperation in the NIS is seen within the wider policy 
context which seeks to further cross-border development between the European 
Community, CEECs and NIS through a number of instruments. The following events have 
played an important role in shaping this policy: 
Since the late 1980's the EC has supported cross-border and transnational 
cooperation through its Structural Funds, notably under the Community Initiative Interreg. 
The Interreg HA Initiative provides finance for programmes covering border regions on all 
internal and external borders of the Union for the period 1994-99, the INTERREG ÎIC 
initiative provides finances for transnational cooperation in several areas including around 
the Baltic sea. 
In 1994, at the European Parliament's initiative, a separate budget line was created 
within Phare to support cross-border cooperation on the borders between the CEECs and 
the Member States. This led to the development of the Phare Cross-border cooperation 
programme, which is modelled on Interreg, and governed by a separate Commission 
Regulation4, with programmes approved annually. 
The Essen European Council meeting of December 1994 defined the main policy 
parameters for cross-border cooperation in the CEECs and NIS. It was agreed to "establish 
a programme of regional cooperation and bon voisinage, to promote multi-annual, multi-
country cooperation in land and maritime border regions encompassing EU-CEEC, CEEC-
CEEC and CEEC-NIS countries, in areas such as transport, utilities, environment, 
economic development, human resources and agriculture". This framework was further 
strengthened by the "Pact on Stability in Europe" in March 1995, which emphasized the 
"common and continuing effort to put an end to threats of tensions and crises and to create 
an area of lasting good-neighbourliness and cooperation in Europe". 
The Partnership and Cooperation Agreements (PCAs) between the Communities, 
their Member States and respective countries include the objective of a gradual 
rapprochement with a wider area of European cooperation. The Action Plans for Russia 
and Ukraine state the importance of cross-border cooperation with the EC and associated 
countries. This point was included in the new Tacis Regulation.5. 
2. Objectives and tools 
2.1 Against this background the aim is to support sustainable projects, (transfer of 
know-how, development of cross-border contacts, funding of small-scale infrastructure and 
joint ventures) which have a cross-border impact and are supported by communities on both 
sides of the border. This should allow the development of relationships that last beyond the 
duration of any project, leading to sustainable regional cooperation. Priority will be given 
to projects where there is demonstrable local or regional commitment and a systemic 
impact. 
4 Commission Regulation No 1628/94 of 4 July 1994 concerning the implementation of a programme for 
cross-border cooperation between countries in central and eastern Europe and Member States of the 
Community, in the framework of the Phare programme. OJ L171,6 July 1994, p 14 
5 Council Regulation No 1279/96 of 25 June 1996 concerning the provision of assistance to economic 
reform and recovery in the New Independent States and Mongolia. OJ L165 4 My 1996, p 1 
2.2 Projects will be funded which contribute to the achievement of the following 
objectives. 
to improve the efficiency and effectiveness of border control and transit 
The tools to be used are the strengthening of border networks, through improved border 
crossing procedures and appropriate infrastructure, and the strengthening of border security 
through joint border management programmes on both sides of the border. Priority will be 
given to: 
- the facilitation of local transit across the borders, a pre-requisite for cross-border 
cooperation and regional development. 
- those border-crossings linking the EC, CEECs and NIS countries, which are located on 
the Crete Corridors6, in view of the EC's Common Transport Policy and the development of 
an integrated Pan-European Transport Network of multi-modal corridors 
to assist border regions in overcoming their specific development problems which 
stem from being on the periphery of their national economies. 
The tools to be used are the creation of co-operation and business development between 
communities, which, together with the establishment of links between border networks, will 
develop trade and economy in the regions. Projects on the border with the EU requiring 
equity investment will be funded through the Joint Venture Programme (JVP). 
to address two main types of local transfrontier environmental problem. Firstly, 
where dual activity is needed simultaneously on both sides of the border (e.g. pollution in 
border lakes), and secondly where investment is needed in the NIS to deal with a problem 
whose effects are felt on the other side of the border (e.g. up stream waste ). 
The tools to be used are studies of local environmental problems, often as part of a regional 
approach, detailed project design and proposals for follow up investment by third parties for 
supporting infrastructure. Special consideration will also be given to activities which 
support wider Community policy, such as the EC's 5th Environmental Action Plan7. 
Moreover a portion of the budget will be set aside for supplementary activities which 
support the programme's objectives and match the priorities of Interreg IIA8, and Phare 
programmes. 
2.3 A precondition for the successful implementation of any cross-border cooperation 
activity is the regional and local capacity to generate and develop projects, including the 
development of sustainable relationships between border communities. 
6 Priority multi-modal transport corridors linking the Union with its Eastern neighbours, as identified by 
the 2nd Pan-Europan Transport Conference 1994 in Crete 
7 EC 5th Action Plan "Towards Sustainability". 
8 The key sectors identified in the Interreg IIA programme for the Finnish-Russian border are: Transport 
and telecommunications, Development of business and business environment, Environment, and 
Increasing know-how and conditions for regional cooperation. 
3. Priorities 
3 1 In the early years of the programme priority will be given to institutional support 
This will make it possible for regional and local authorities to play a fuller role in the 
programme as it develops. Simultaneously, in the first instance, focus will be given to the 
development of border networks and management. In addition to key border crossings 
priority will be given to projects directly linking border communities, such as business 
development. Environmental projects will maintain a key role in all years of the 
programme. 
4. Geographical focus: eligible regions 
4.1 The geographical orientation of the Tacis cross-border cooperation programme will 
focus on the borders between the NIS and the EC, and the NIS borders with the Baltic 
States. In addition the programme will cover the land borders of Russia, Ukraine, Belarus 
and Moldova with the CEECs. Details of the eligible regions are provided in the map at 
annex 1. Activities in the area of Archangelsk will be considered only in exceptional 
circumstances, in order to complement activities funded under the Interreg IIA programme. 
4.2 To ensure a coherent approach the Commission intends to consider cross-border 
cooperation activities on NIS-NIS borders under the Tacis Inter-State programme. First 
initiatives in this respect have been taken. 
5. Methodology 
5.1 Appropriate procedures will be developed to take into account the objectives of the 
cross-border cooperation programme and the framework within which it fits. These will 
incorporate the strong involvement of regional and local authorities and the flexibility to 
take into account small scale grassroots projects. Specific project selection criteria will 
include the need for cross-border impact, consideration of synergy with other Community 
programmes and absorption capacity. 
5.2 Synergy with other Community programmes 
5.2.1 Cross-border cooperation under the Tacis programme will be implemented in such a 
way that a maximum of synergy is achieved with the Interreg and Phare Cross-
border Cooperation Programmes. This will be of particular benefit for the Barents 
Region and Baltic Sea Region, in accordance with the approach adopted in the 
Baltic Sea Region Initiative at Visby in May 1996, which called for more effective 
complementary action by EC funding instruments (Interreg, Phare and Tacis). 
5.2.2 Interreg and Phare Cross-border cooperation programmes are making determined 
efforts to harmonise their approach where practicable, to make the overall EC 
funding system as simple and understandable as possible to final beneficiaries. Tacis 
cross-border cooperation will also adopt this approach, while working within the 
existing Tacis framework. The specific procedures for Tacis cross-border 
cooperation will not detract from the general procedures applicable under the Tacis 
Regulation, such as the role of the Tacis Management Committee. 
5.2.3 Learning from the experience of other Community cross-border cooperation 
programmes, it is intended to use existing regional frameworks as much as possible. 
Obviously, where necessary, support will be given to their further development. 
5.2.4 Where relevant, existing Committee structures set up under Phare/Interreg Cross-
order cooperation programme will be consulted. Thus, for example, to ensure 
harmonisation with other actions in the Baltic Sea Region, the Commission will 
consult with the Baltic Coordination Committee on developments within the Tacis 
cross-border cooperation programme. 
5.3 Small project facility 
Small-scale local cross-border cooperation actions are given a high priority by regional 
authorities and communities, in order that they can work together with funds of an 
appropriate size. Projects of this size will be funded under the cross-border cooperation 
programme through the Tacis small-scale project facility. It is proposed that funding in this 
area will link Tacis activities with complementary Community programmes, based upon the 
successful model developed for the Baltic Small Project Facility (BSPF) The facility will be 
demand driven and flexible, to cover a wide range of areas of economic cooperation 
including support to the democratic process. 
5.4 Role of regional/local authorities 
Identification and preparation of activities will be carried out at the regional and local level 
as far as possible drawing on contacts and advice from Interreg regions. National 
authorities, in accordance with normal Tacis principles, will retain a role in the programme, 
in particular with regard to projects of national importance, such as border-crossings, and 
final programme approval. 
5.5 Awareness Raising 
5.5.1 A first step will be to organise meetings for each NIS border concerned, where 
national, regional and local authorities will be represented. Through this framework 
the relevant authorities will be involved in project identification, development and 
selection. 
5.5.2 Separate meetings will be held for regional and local authorities to discuss the 
development and implementation of the Tacis small-project facility. Workshops to 
assist in project identification and development will play an important part in 
increasing the local and regional capacity for involvement in the programme. 
CROSS-BORDER COOPERATION PROGRAMME 
ELIGIBLE BORDER REGIONS OF RUSSIA 
Russian - Finnish Border 
Murmansk oblast 
Republic of Karelia 
Archangelslc oblast 
(eligible in exceptional circumstances 
only to complement activities funded 
under the Interreg IIA Programme) 
Cily of St Petersburg 
Leningrad oblost Russian - Estonian Border 
6(5) Leningrad oblast 
7 Pskov oblast 
Russian - Latvian Border 
8(7) Pskov oblast 
Russian - Polish/Russian - Lithuanian Border 
9 Kaliningrad oblast 
8 

ISSN 0254-1475 
COM(97) 239 final 
EN 11 oi 15 
Catalogue number : CB-CO-97-231-EN-C 
ISBN 92-78-19866-8 
Office for Official Publications of the European Communities 
L-2985 Luxembourg