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
Date: 1997-05-27
Institutions: European Commission
Subjects: CIS countries, Central and Eastern European countries, EU programme, cooperation policy, cross-border cooperation

COMMISSION  OF THE  EUROPEAN  COMMUNITIES 

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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. 

A key factor  behind  the reinforcement  of cross-border  cooperation  in this region  is 
1.2 
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 

Projects  will  be  funded  which  contribute  to  the  achievement  of  the  following 

2.2 
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: 
- 
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 

the  facilitation  of  local  transit  across  the  borders,  a  pre-requisite  for  cross-border 

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 

Russian  - Estonian  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 

6(5) 
7 

Leningrad oblast 
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 

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