Communication from the Commission to the Council and the European Parliament - Extension of the major trans-European transport axes to the neighbouring countries - Guidelines for transport in Europe and neighbouring regions {SEC(2007) 98} {SEC(2007) 99}
Date: 2007-01-31
Institutions: European Commission
Subjects: European neighbourhood policy, common transport policy, cooperation policy, trans-European network, transport network

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 31.1.2007 
COM(2007) 32 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

Extension of the major trans-European transport axes to the neighbouring countries 

Guidelines for transport in Europe and neighbouring regions 

{SEC(2007) 98} 
{SEC(2007) 99} 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

Extension of the major trans-European transport axes to the neighbouring countries 

Guidelines for transport in Europe and neighbouring regions 

(Text with EEA relevance) 

Table of contents 

1. 

1.1. 

1.2. 

Introduction and policy background ............................................................................ 3 

The EU and the neighbouring regions ......................................................................... 3 

Transport context ......................................................................................................... 4 

1.2.1.  Trans-European transport networks in the European Union........................................ 4 

1.2.2.  Pan-European Corridors/Areas .................................................................................... 4 

1.2.3.  Network development at regional level ....................................................................... 4 

1.3. 

Policy development process......................................................................................... 6 

2. 

Guidelines for transport in Europe and neigbouring regions ....................................... 6 

2.1. 

Five axes to connect the EU and the neighbours ......................................................... 7 

2.1.1. 

Integration of the Pan-European Corridors/Areas........................................................ 7 

2.1.2.  Cooperation with other organisations .......................................................................... 8 

2.2. 

2.3. 

Infrastructure projects .................................................................................................. 8 

Horizontal measures to promote interoperability......................................................... 8 

2.3.1.  EU cooperation to implement horizontal measures ..................................................... 9 

3. 

3.1. 

3.2. 

3.3. 

3.4. 

Implementation of the policy guidelines.................................................................... 10 

Multilateral structure for coordination and monitoring ............................................. 10 

Financing of the measures.......................................................................................... 10 

Institutional setting..................................................................................................... 11 

Stepwise approach...................................................................................................... 12 

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1. 

INTRODUCTION AND POLICY BACKGROUND 

An important objective for the external policy of the European Union (EU) is to facilitate the 
spread  of  the  Union’s  policies,  such  as  the  internal  market  principles  and  rules,  to  the 
neighbouring countries. This is clearly underlined in the recently adopted Communication on 
the ‘Strengthening of the European Neighbourhood Policy’1. In the transport sector, the aim is 
to ensure that legislation, standards and technical specifications of our main trade partners are 
compatible with those of the EU and thus contribute to the achievement of the Lisbon agenda 
by encouraging trade and sustainable growth as well as social cohesion.  

This Communication outlines the first steps of a comprehensive policy for closer integration 
of the EU transport system with the neighbouring countries. The policy focuses on the main 
infrastructure used by international transport and on the relevant legislation affecting the use 
of these routes by all transport modes; over time this approach may lead to the development 
of  common  rules  and  regulations  for  the  transport  sector  as  a  whole  and  thus  create  an 
effective transport market involving the EU and its neighbours. 

1.1. 

The EU and the neighbouring regions 

After  the  historic  enlargement  by  10  countries  of  Central  and  Eastern  Europe  and  the 
Mediterranean  in  2004,  Romania  and  Bulgaria  have  now  joined  the  EU  at  the  beginning  of 
2007. Croatia and Turkey are candidate countries and accession negotiations are ongoing with 
both of them. The Former Yugoslav Republic of Macedonia is a candidate country. Albania, 
Bosnia and Herzegovina, Montenegro, and Serbia, including Kosovo2, are potential candidate 
countries.  

The European Neighbourhood Policy (ENP) was developed with the objective of avoiding the 
emergence of new dividing lines between the EU and its neighbours: its aim is at promoting 
peace, stability, security, growth, development and prosperity in the neighbouring countries as 
well  as  modernisation  of  economy  and  society.  The  ENP  was  originally  addressed  to  the 
immediate neighbours. In the meantime action plans have been concluded with Israel, Jordan, 
Lebanon,  Moldova,  Morocco,  the  Palestinian  Authority,  Tunisia,  Ukraine,  Armenia, 
Azerbaijan and Georgia, the one with Egypt will soon be concluded. The EU and Russia have 
approved  road-maps  for  strengthening  their  cooperation  by  establishing  four  “common 
spaces” at the summit in May 2005. 

These  initiatives  have  established  a  novel,  comprehensive  and  forward  looking  framework 
through which the EU seeks to extend the principles of the ‘Single Market’, promote political 
and economic reform, development and modernisation for mutual benefit. As underlined by 
the  recent  Communication  on  the  ‘Strengthening  of  the  European  Neighbourhood  Policy’ 
there  are  a  number  of  cross-cutting  themes,  among  which  transport,  where  the  EU  and  its 
neighbours have common interests and concerns and which usefully could be addressed in a 
multilateral  context.  In  order  to  take  full  advantage  of  closer  relations  with  the  EU  and  the 
prospect of improved access to its market, neighbouring countries’ transport systems must be 
able to handle increased transport flows. The accession process and ENP frameworks clearly 
state that trans-European network policy should include strategies to reach this objective. 

1 
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COM(2006) 726, 4.12.2006. 
Under United Nations Security Council Resolution 1244 of 10 June 1999. 

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1.2. 

Transport context 

1.2.1.  Trans-European transport networks in the European Union 

The trans-European transport network (TEN) policy, revised in 20043, focuses investments on 
30 priority transnational axes and projects. The policy has a strong focus on the integration of 
the  networks  of  the  new  Member  States.  As  emphasised  by  the  European  Council  in 
December 2003, the trans-European axes will reinforce the competitiveness and cohesion of 
the  enlarged  Union  by  better  connecting  the  internal  market.  The  TEN  policy  does  not, 
however,  address  transport  connections  between  the  EU  and  the  neighbouring  countries  or 
other  trade  partners.  These  links  have  been  developed  through  the  Pan-European  Corridors 
and Areas since the early 1990’s. 

1.2.2.  Pan-European Corridors/Areas 

Pan-European  Corridors  and  Areas  (PEC)  were  developed  during 
two  Ministerial 
Conferences  in  Crete  (1994)  and  in  Helsinki  (1997)  with  the  aim  of  connecting  the  EU-15 
with  the  then  neighbouring  countries.  Following  the  2004  and  2007  enlargements,  the 
Corridors are now mainly within the EU and thus part of the TEN network. 

The  cooperation  along  the  PECs  is  organised  through  non-binding  Memoranda  of 
Understanding  (MoU),  which  also  establish  a  Chair  and  Secretariat  for  most  of  them.  The 
financing of the Secretariats, being the responsibility of one country along the Corridor, has 
been uneven and much depends on the particular circumstances of the PEC; in particular, the 
following weaknesses have been identified:  

– 

– 

– 

Planning  and  prioritisation  of  investments  is  in  most  cases  done  in  a  piecemeal 
fashion that follows national logic neglecting the needs of international movements 
along the whole axis. 

The  focus  is  on  infrastructure  and  insufficient  attention  is  paid  to  removing  non-
infrastructure  related  bottlenecks,  which  are  often  the  primary  cause  for  delays, 
particularly at border crossings. 

There  are  no  commonly  agreed  methodologies  to  assess  the  economic,  social  and 
environmental  impacts  of  plans  and  projects  that  would  meet  the  standards  of  best 
international practice. 

1.2.3.  Network development at regional level 

The identification of core networks in some of the neighbouring regions has gone some way 
to  addressing  the  weaknesses  of  the  Pan-European  Corridors/Areas.  These  exercises, 
supported  under  the  accession  framework  and  the  bilateral  action  plans  of  the  European 
Neighbourhood Policy, aim at improving the policy implementation and infrastructure of the 
regional transport systems: 

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Decision No 884/2004/EC. 

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– 

– 

– 

– 

– 

– 

– 

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In 2004 the countries in the Western Balkans4 and the European Commission signed 
a Memorandum of Understanding for the development of a core network. A Steering 
Committee  was  set  up  to  implement  the  MoU,  which  is  supported  by  a  Secretariat 
and the South East Europe  Transport  Observatory  (SEETO).  SEETO  is  operational 
since June 2005 and aims to establish information systems and to formulate a five-
year multi-annual plan and procedures for improving the core network. In addition, 
the  international  donors,  led  by  the  World  Bank  and  the  EU  have  set  up  an 
Infrastructure Steering Group to coordinate donor activities. 

In  the  Mediterranean  region,  cooperation  in  the  transport  sector  was  launched  in 
1995  under  the  Barcelona  Process,  which  set goals  designed  to  lead  to  a  free  trade 
area  in  the  Mediterranean  region  by  2010.  A  Euro-Mediterranean  Transport  Forum 
was created in 1998 to co-ordinate common approaches and to develop an integrated 
regional  transport  system.  The  first  Euro-Mediterranean  Transport  Ministerial 
Conference,  which  took  place  in  2005,  identified  the  main  priorities  for  the 
development  of  the  transport  sector  and  requested  the  Forum  to  adopt  a  regional 
transport action plan for the next five years. 

Turkey  is  in  the  process  of  identifying  a  core  network  and  a  list  of  priority 
infrastructure  projects  as  part  of  the  accession  negotiations.  Turkey  is  involved  in 
both the Pan-European Corridors and the TRACECA corridor. 

The  TRACECA  corridor,  developed  since  1993,  connects  Europe  with  Turkey  and 
further with Armenia, Azerbaijan and Georgia in the Southern Caucasus until Central 
Asia. Cooperation is organised through a basic multilateral agreement signed by the 
countries  concerned5,  which  set  up  an  Inter-Governmental  Commission  and  a 
permanent  Secretariat.  The  Secretariat  supervises  the  implementation  of  the 
decisions  of  the  Commission  and  puts  forward  appropriate  proposals  to  ensure  the 
realisation of the multilateral agreement. 

For Belarus, Moldova and Ukraine, the Pan-European Corridors remain the reference 
network.  

Regarding  Russia,  cooperation  in  transport  is  established  under  the  EU-Russia 
dialogue that was launched in 2005. Five expert working groups have been created, 
covering transport strategies, infrastructure and public-private partnership; transport 
security;  air  transport;  maritime,  sea-river  and  inland  waterway  transport;  road  and 
rail transport.  

The  Caspian  and  Black  Sea  cooperation  is  established  as  a  follow-up  to  the  EU-
Black  Sea-Caspian  Basin  Transport  Ministerial  Conference  in  2004  in  Baku  and  it 
brings together the TRACECA countries, Russia and Belarus. As part of this “Baku 
process”,  four  expert  working  groups  have  been  set  up  in  transport,  covering 
aviation,  security,  road  and  rail  transport,  and  infrastructure.  The  objective  is  to 

Albania,  Bosnia  and  Herzegovina,  Croatia,  Former  Yugoslav  Republic  of  Macedonia,  Montenegro, 
Serbia and Kosovo (under the UN Security Council Resolution 1244). 
These  are:  Afghanistan,  Armenia,  Azerbaijan,  Bulgaria,  Georgia,  Kazakhstan,  the  Kyrgyz  Republic, 
Moldova,  Romania,  Tajikistan,  Turkey,  Ukraine  and  Uzbekistan.  Pakistan  and  Iran  have  applied  for 
TRACECA membership. 

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strengthen  cooperation  between  the  EU  and  the  partner  States  and,  even  more 
importantly, among the countries of the region. 

The  Commission  believes  that  these  initiatives  are  a  key  step  in  achieving  sustainable 
development  and  regional  integration.  Notably,  the  process  of  integrating  the  neighbouring 
countries  into  the  EU  markets  and  society  requires  compatible  and  interconnected 
infrastructure  and  approximated  regulatory  environments.  It  also  requires  focusing  on  a 
limited number of key transnational connections to ensure that the inevitably scarce resources 
bring  about  a  noticeable  stimulus  to  trade  and  economic  growth  both  in  the  EU  and  in  the 
neighbouring countries. An outline of such a policy is presented below (Chapter 2). 

1.3. 

Policy development process 

To implement the concept of European Neighbourhood Policy into the transport field and to 
find ways to better connect the EU with its neighbours, the European Commission established 
in 20046 the High Level Group on the Extension of the major trans-European transport axes 
to  the  neighbouring  countries  and  regions,  chaired  by  former  Commission  Vice-President 
Loyola de Palacio. The report7 of the Group was submitted to the Commission in December 
2005.  A  public  consultation  process  was  organised  throughout  the  work  of  the  Group  to 
integrate  the  views  and  concerns  of  the  stakeholders.  Whilst  the  majority  of  stakeholders 
welcomed the Group’s recommendations; some concern was raised regarding the inclusion of 
environmental and social aspects8. 

2. 

GUIDELINES FOR TRANSPORT IN EUROPE AND NEIGBOURING REGIONS 

Having examined the proposals of the High Level Group and the reactions received through 
the public consultation, the Commission considers that the Group’s work forms a good basis 
for  cooperation  between  the  EU  and  the  neighbouring  countries.  The  Commission  therefore 
recommends to the Council and to the European Parliament to take note of the Group's report 
and accept the proposal to revise the concept of the Pan-European Corridors/Areas (PEC) in 
the following ways:  

– 

– 

– 

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To  extend  the  geographical  coverage  of  the  concept  of  the  PECs  to  take  fully  into 
account the revised trans-European network policy and the accession framework and 
European Neighbourhood Policy objectives. 

To  extend  the  relevant  internal  market  principles  and  rules  to  the  neighbouring 
countries by taking into account sustainability and by underlining the importance of 
non-infrastructure  measures  to  facilitate  trade  and  transport  flows  along  the  main 
axes. 

To strengthen coordination and monitoring frameworks to ensure full commitment of 
the  countries  concerned,  to  enable  pooling  of  resources  towards  sustainable 
development  of  infrastructure  and  enabling  the  projection  of  the  Union’s  policies, 
including the social dimension. 

Commission Decision C(2004) 3618 of 29 September 2004. 
See http://europa.eu.int/comm/ten/transport/external_dimension/index_en.htm 
The  written  and  oral  contributions 
http://ec.europa.eu/ten/transport/external_dimension/hlg/index_en.htm 

for  both  consultations  can  be  downloaded 

from 

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2.1. 

Five axes to connect the EU and the neighbours 

The Commission considers that the extent of the Pan-European Corridor/Area concept needs 
to  be  updated  to  reflect  the  new  geopolitical  context  following  the  EU  enlargement  and  to 
better connect the major axes of the trans-European networks with those of the neighbouring 
countries.  It  therefore  proposes  to  adopt  the  following  five  transnational  axes,  which  are  in 
line with those proposed by the High Level Group (for the alignment, see Annex): 

– 

– 

– 

– 

– 

Motorways  of  the  Seas:  to  link  the  Baltic,  Barents,  Atlantic  (including  Outermost 
Regions9),  Mediterranean,  Black  and  the  Caspian  Sea  areas  as  well  as  the  littoral 
countries within the sea areas and with an extension through the Suez Canal towards 
the Red Sea. 

Northern axis: to connect the northern EU with Norway to the north and with Belarus 
and Russia to the east. A connection to the Barents region linking Norway through 
Sweden and Finland with Russia is also foreseen. 

Central axis: to link the centre of the EU to Ukraine and the Black Sea and through 
an inland waterway connection to the Caspian Sea. A direct connection from Ukraine 
to the Trans-Siberian railway and a link from the Don/Volga inland waterway to the 
Baltic Sea are also included. 

South Eastern axis: to link the EU with the Balkans and Turkey and further with the 
Southern Caucasus and the Caspian Sea as well as with the Middle East up to Egypt 
and the Red Sea. 

South Western axis: to connect the south-western EU with Switzerland and Morocco, 
including the trans-Maghrebin link connecting Morocco, Algeria and Tunisia and its 
extension to Egypt. 

Following  the  analysis  made  by  the  High  Level  Group,  these  five  axes  contribute  most  to 
promoting  international  exchanges,  trade  and  traffic.  They  also  include  some  branches  in 
regions,  where  traffic  volumes  are  relatively  low  due  to  current  political  problems,  aiming 
thus at strengthening regional cooperation and integration in the longer term. In this context, 
the  Commission  underlines  that  open  and  secure  borders  between  the  EU  and  the 
neighbouring  countries  and  between 
themselves  are  of 
fundamental importance for stimulating trade and strengthening regional cooperation.  

the  neighbouring  countries 

The Commission proposes to consider at this stage only the connections linking the EU with 
the  neighbouring  countries  and  not  those  links  from  the  neighbouring  countries  to  third 
countries (see however point 2.1.2). It also underlines that these five axes do not amend the 
priorities set for the trans-European transport networks for the EU (see point 1.2.1). 

2.1.1. 

Integration of the Pan-European Corridors/Areas 

In line with the views of the Pan-European Corridor Chairs, the Commission proposes to fully 
integrate the PECs into the new structures and to build on their expertise. Whilst most of the 
Pan-European Corridors I, IV, V, VI and VII are now in the territory of the EU and thus part 

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Canaries Islands, Azores and Madeira. 

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of  a  priority  project  of  the  trans-European  transport  networks,  the  remaining  Corridors  are 
covered by the proposed five axes as follows: 

– 

– 

– 

– 

– 

The  four  Pan-European  Areas  (Barents,  Black,  Ionian  and  Mediterranean  Seas)  are 
incorporated  into  the  Motorways  of  the  Seas  as  far  as  maritime  connections  are 
concerned. 

Northern  axis  incorporates  the  PEC  II  and  the  northern  part  of  PEC  IX.  It  also 
includes  a  land  connection  to  the  Pan-European  Area  of  Barents  linking  Norway 
through Sweden and Finland with Russia. 

Central axis includes the PEC III and a branch of PECs V and IX.  

South Eastern axis merges and extends the PECs IV and X, incorporates PECs VII 
and VIII as well as a branch of PEC V. The axis is further extended to the Middle 
East and it joins with TRACECA in Turkey, Armenia, Azerbaijan and Georgia. 

South  Western  axis  includes  a  land  connection  in  the  Pan-European  Area  of  the 
Mediterranean. 

2.1.2.  Cooperation with other organisations 

The  Commission  considers  essential  that  the  development  of  the  five  axes  is  closely 
coordinated  with  organisations  developing  international  transport  corridors  in  other  regions. 
These  include  in  particular  the  TRACECA  corridor  in  Central  Asia,  the  trans-African 
networks10  as  well  as  networks  linking  Europe  with  Asia,  developed  by  the  United  Nations 
Economic Commission for Europe, the United Nations Economic and Social Commission for 
Asia and the Pacific and the European Conference of Ministers of Transport. 

2.2. 

Infrastructure projects  

The High Level Group put forward a number of infrastructure projects, which it classified into 
two  categories  depending  on  the  maturity.  The  public  consultation  raised  concerns  that  the 
further  development  of  some  of  the  transnational  axes  could  have  negative  impacts  on  the 
surrounding  environment  and  particularly  on  biodiversity.  The  Commission  therefore 
proposes  to  consider  the  project  lists  as  indicative  and  underlines  the  importance  of 
developing  master  plans  for  the  axes.  These  master  plans  should  be  subject  to  strategic 
economic, environmental and social impact assessment in line with best international practice 
and when relevant with EU legislation11. 

2.3. 

Horizontal measures to promote interoperability 

The  Commission  proposes  to  endorse  the  horizontal  measures  proposed  by  the  High  Level 
Group as the basis for cooperation in view of making transport along the axes more rapid and 
effective.  These  measures  aim  at  gradually  approximating  the  neighbouring  countries’ 

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11 

These  are  developed  under  the  framework  of  African  Union  and  the  EU-Africa  Partnership  on 
Infrastructure. 
For  practical  guidance  on  the  implementation  of  socio-economic  appraisal  and  on  strategic 
environmental  assessment,  see  the  6th  Research  Framework  Programme  projects  HEATCO  at 
http://heatco.ier.uni-stuttgart.de/ and BEACON at http://www.transport-sea.net/results.phtml 

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legislation  and  policies  with  the  relevant  acquis  communautaire;  they  concern  all  transport 
modes and include, among others: 

– 

– 

– 

– 

– 

Ensuring technical, legal and administrative interoperability with systems in the EU 
as  regards  e.g.  railway  networks,  signalling  systems,  infrastructure  charging 
schemes. 

Speeding up border crossing procedures by implementing without delay the relevant 
international  conventions,  as  already  adopted  in  the  EU,  by  introducing  “one-stop” 
offices  through  shared  facilities,  simplification  and  harmonisation  of  trade  and 
transport related documentation in line with the EU practice. 

Implementation  of  new  technologies  like  traffic  management  and  information 
systems  in  all  modes  (notably  ERTMS12  and  SESAR13),  including  satellite 
navigation (Galileo), that are effective and compatible with those implemented in the 
EU territory. 

Measures  to  improve  safety  and  security  and  working  conditions  in  all  transport 
modes, e.g. through harmonisation of standards and procedures at the highest level of 
performance. 

Application  of 
impact 
assessment, public procurement procedures etc. in accordance with the EU standards, 
donors' funding rules and best international practice. 

international  conventions,  social  and  environmental 

2.3.1.  EU cooperation to implement horizontal measures 

Action  plans  under  EU  cooperation  frameworks  are  one  of  the  key  instruments  for  the 
implementation of the horizontal measures. These action plans are jointly agreed with partner 
countries with the following aims (see also point 1.2.3): 

– 

– 

– 

– 

For  candidate  and  potential  candidate  countries,  the  aim  is  gradual  alignment  with 
the acquis communautaire in all sectors.  

Regarding  the  countries  under  the  ENP,  bilateral  action  plans  and  strategy  papers 
identify priorities in a broad range of areas, including transport and customs as well 
as in cross-cutting fields like environment and social issues. 

Multilateral  cooperation,  in  particular  in  the  context  of  the  implementation  of  the 
TRACECA  strategy  until  2015  and  the  Baku  process,  as  well  as  the  plans  for  a 
Mediterranean regional transport action plan complement the bilateral action plans.  

Cross-border  cooperation  between  adjacent  regions  in  the  EU  and  in  the 
neighbouring  countries  will  play  a  growing  role  including  actions  to  improve 
transport as well as to increase cooperation in legal and administrative areas. 

Whilst the EU cooperation frameworks already address most of the horizontal measures, the 
Commission  believes  that  there  is  a  need  to  look  at  them  in  conjunction  with  infrastructure 

12 
13 

ERTMS is the European Rail Traffic Management System. 
SESAR is the European air traffic control infrastructure modernisation programme. 

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development  along  the  major  trans-national  axes.  This  is  to  ensure  that  the  most  important 
bottlenecks  along  an  axis  are  addressed  in  a  synchronised  and  timely  manner  and  that  the 
different procedures and standards are compatible along the whole axis used by international 
transport to and from the Union.  

3. 

IMPLEMENTATION OF THE POLICY GUIDELINES 

3.1.  Multilateral structure for coordination and monitoring 

The growing challenges facing the EU make it even more important to improve the efficiency 
and  the  coherence  of  its  external  policies  and  to  deliver  better  strategic  planning,  more 
coherence between its various external policy instruments, and enhanced cooperation between 
the  EU  institutions,  the  Member  states,  the  neighbouring  countries  and  other  relevant 
stakeholders. This cooperation should:  

– 

– 

– 

– 

– 

Bring together the countries in a multilateral setting whilst at the same time enabling 
effective regional cooperation. 

Promote interoperability of networks between the EU and the neighbouring countries 
and  further  approximation  of  legislation  and  policies  in  the  neighbouring  countries 
towards  EU  standards  with  a  view  of  ensuring  continued  economic  and  social 
development and environmental sustainability. 

Address  development  needs  of  infrastructure  projects  of  mutual  interest  and  attract 
and direct investments to these projects. 

Monitor 
implementation of the horizontal measures along the axes. 

removal  of  non-infrastructure 

the 

related  bottlenecks  and 

the 

Ensure  and  promote  sustainable  development  by  taking  into  account  the  economic, 
environmental  and  social  consequences  of  infrastructure  plans  and  projects  and 
horizontal measures. 

3.2. 

Financing of the measures 

Implementation  of  this  ambitious  plan  requires  pooling  together  all  the  relevant  financing 
sources,  both  public  and  private  as  well  as  nationally  and  internationally.  Whilst  the  public 
budgets will remain important, the role of the international financing institutions (IFIs) such 
as  the  European  Investment  Bank  (EIB),  the  European  Bank  for  Reconstruction  and 
Development (EBRD) and the World Bank is crucial in funding the balanced development of 
the major transnational axes and the overall transport system.  

The  Commission  recommends  to  build  on  the  successful  cooperation  with  the  IFIs  in  the 
Western Balkans Infrastructure Steering Group (see point 1.2.3) and to extend the concept to 
other  regions.  EU  Member  states  and  other  donor  should  be  integrated  in  such  cooperation 
when relevant. 

From  2007  onwards  the  European  Neighbourhood  and  Partnership  Instrument  (ENPI)  will 
provide financial assistance to neighbouring countries. This will include support for Financial 
Institutions  lending  in  the  priority  sectors  through  a  proposed  “Neighbourhood  Investment 
Facility” as well as support for the implementation of the horizontal measures. In addition EU 

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assistance  could  help  countries  to  prepare  for  investments  by  supporting  studies  on  the 
definition of master plans, feasibility of projects and on public-private partnerships.  

In  addition  the  Commission  proposal  for  the  new  EIB  external  lending  mandates  for  2007-
2013 foresees a considerable increase in the lending ceilings for the neighbouring countries. A 
specific Memorandum of Understanding has been signed between the Commission, the EIB 
and the EBRD to facilitate co-operation in Eastern Europe and Southern Caucasus, in Russia 
and Central Asia. 

The  Pre-Accession  Instrument  (IPA)  will  provide  financial  assistance  to  the  candidate 
countries and the potential candidate countries (see point 1.1). Depending on the status of the 
country, the range of support varies. The candidate countries will be offered the full range of 
pre-accession  assistance,  including  support  to  fulfil  the  accession  criteria  and  to  prepare  for 
cohesion policy, including investments in infrastructure, whereas the potential candidates will 
benefit from a more limited range of measures. 

3.3. 

Institutional setting 

Following  the  analysis  presented  in  the  preceding  chapters  and  the  strong  support  received 
from  the  different  stakeholders  through  the  public  consultation,  the  Commission  is  of  the 
opinion that a strong binding coordination framework is essential. This would ensure strong 
commitment  and  joint  ownership  of  the  countries  concerned  to  implement  the  necessary 
measures in a timely and synchronised manner along the axes. 

One  possible  coordination  framework  could  foresee  the  establishment  of  a  cost  effective 
institutional  setting  to  support  the  implementation  and  monitoring  of  the  axes.  This  could 
entail the setting up of a three-level structure consisting of: 

– 

– 

– 

Regional  steering  groups  to  follow  the  implementation  of  the  agreed  axes  and 
measures at technical level. The regional steering groups could also organise Donors’ 
Conferences  by  axis  and  involve  social  partners  and  other  stakeholders  when 
relevant.  All  the  regional  steering  groups  should  meet  together  regularly,  e.g. 
annually,  to  ensure  coherent  implementation  of  the  agreed  measures  as  well  as  to 
agree on common methods for strategic and project level assessment and monitoring. 

to 

Ministerial  meetings 
the  coordination 
framework  as  well  as  the  transnational  axes,  infrastructure  projects  and  horizontal 
measures  and  their  further  development  based  on  a  joint  recommendation  of  the 
regional steering groups. 

take  strategic  decisions  regarding 

A Secretariat to provide administrative and technical support. Sustainable, sufficient 
and  long-term  financing  for  the  Secretariat  should  be  guaranteed  envisaging 
contribution  from  the  countries  concerned  by  the  axes  to  strengthen  their 
commitment and ownership.  

To  ensure  cost  effectiveness  and  to  avoid  unnecessary  duplication  of  work,  the  existing 
regional Steering Groups and Secretariats should provide the above functions, whenever they 
exist (see point 1.2.3). 

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3.4. 

Stepwise approach 

To speed up the overall process and to ensure that the format and content of the cooperation 
structure meets the needs and expectations of the parties concerned, the Commission will take 
a two-step approach to implement the policy: 

1. 

2. 

In  the  first  phase,  exploratory  talks  would  be  launched  with  all  the  neighbouring 
countries.  These  talks  would  aim  at  assessing  the  interest  and  commitment  of  the 
countries to strengthen the multilateral coordination frameworks, where these exist, 
or to put such a framework in place, where these  do  not exist today. In  this phase, 
eventual  interim  solutions  would  also  be  sought  to  allow  for  uninterrupted 
development of the axes. 

As  a  second  step,  following  the  outcome  of  the  exploratory  talks,  the  Commission 
would make concrete recommendations and/or proposal to implement the policy and 
coordination framework.  

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Annex - Alignment of the five trans-national axes 

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