COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT The EU and its neighbouring regions: A renewed approach to transport cooperation
Date: 2011-07-07
Institutions: European Commission
Subjects: European neighbourhood policy, international cooperation, means of transport, transport policy

EUROPEAN COMMISSION 

Brussels, 7.7.2011 
COM(2011) 415 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

The EU and its neighbouring regions: A renewed approach to transport cooperation  

 
 
 
 
  
 
1. 

INTRODUCTION 

Objective 

Transport  contributes  significantly  to  Europe's  prosperity.  It  enables  goods  to  be  distributed 
efficiently and citizens to travel freely. The EU is a major political and economic partner of 
countries in neighbouring regions. Strengthened cooperation in the transport sector can make 
a difference in helping our neighbours to become economically stronger and politically more 
stable.  Citizens  and  businesses  in  the  EU  and  in  neighbouring  regions  are  the  direct 
beneficiaries of improved transport cooperation, which aims to reduce the time and resources 
spent  on  transportation  of  goods  and  passengers.  Closer  market  integration  can  also  help  to 
open  up  new  market  opportunities  for  businesses  both  in  the  EU  and  the  neighbouring 
regions.  

The  present  Communication  sets  out  a  renewed  transport  policy  cooperation  with  the  EU´s 
neighbouring regions, building on the 2007 Commission Communication1, which focused on 
infrastructure  aspects.  It  covers  both  the  European  Neighbourhood  Policy  (ENP)2  and  the 
enlargement  countries3,  with  primary  emphasis  on  the  ENP  countries.  The  high  level  of 
transport  cooperation  already  attained  with  enlargement  countries  can  be  a  model  for 
improving transport connections with other neighbouring regions.4  

The  Commission  has  recently  reviewed  the  ENP,  the  single  policy  framework  for  the  EU´s 
relations  with  its  neighbouring  partner  countries5  and  proposed  a  new  response  to  a 
changing neighbourhood. In line with this response, transport cooperation will be tailored to 
the  needs  of  each  sub-region.  The  EU  will  apply  a  higher  level  of  differentiation  in  the 
transport sector depending on each country's ambition and readiness to integrate more closely 
with the EU. EU support, in the shape either of financing for infrastructure connections or of 
greater market access, will be conditional on progress in the neighbouring countries. 

Policy context  

With the entry into force of the Lisbon Treaty, the EU has committed itself to developing a 
special  relationship  with  neighbouring  countries  (Article  8  TEU).  The  Treaty  also  provides 
that  the  Union  may  decide  to  cooperate  with  third  countries  to  promote  projects  of  mutual 
interest and to ensure the interoperability of networks (Article 171, par. 3 TFEU). 

The Europe 2020 Strategy attaches importance to deploying external aspects of our internal 
policies  for  fostering  EU  economic  growth.  This  is  particularly  true  of  transport  policy,  as 
efficient  border  crossings,  shorter  and  faster  connections  and  liberalisation  of  markets 
facilitate the flow of goods and people across the EU´s borders.  

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Extension  of  the  major  trans-European  transport  axes  to  the  neighbouring  countries,  COM(2007)  32, 
31.1.2007 
ENP  East:  Armenia,  Azerbaijan,  Belarus,  Georgia,  Moldova,  Ukraine;  ENP  South:  Algeria,  Egypt, 
Israel, Jordan, Lebanon, Libya, Morocco, Occupied Palestinian Territory, Syria, Tunisia.  
Candidate  countries:  Croatia,  the  former  Yugoslav  Republic  of  Macedonia,  Montenegro,  Turkey. 
Potential candidates: Albania, Bosnia and Herzegovina, Serbia, Kosovo (under UNSCR 1244/99).  
Iceland, Norway, Russia and Switzerland are not covered by this Communication  
COM(2011) 303, 25.05.2011 

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In March 2011, the Commission adopted a Roadmap to a Single European Transport Area 
– Towards a competitive and resource-efficient transport system6 for increasing mobility 
and fuelling growth and employment. In this roadmap, the Commission proposed extending 
the EU´s transport and infrastructure policy to our immediate neighbours and opening up third 
country markets in transport services.  

The  Commission  is  currently  reviewing  the  TEN-T  policy.  This  policy  also  aims  at  better 
connecting the TEN-T with the infrastructure networks of neighbouring countries.  

Also,  the  EU  has  put  in  place  macro-regional  strategies,  such  as  the  EU  Strategy  for  the 
Danube Region7, that seek to improve mobility between the regions and include some of the 
countries in neighbouring regions.  

2. 

CLOSER MARKET INTEGRATION FOR FASTER AND CHEAPER CONNECTIONS 

Closer integration between the transport markets of the EU and those of the enlargement and 
ENP countries can make transport connections faster, cheaper and more efficient, to the 
advantage of citizens and businesses. Prospects for closer market integration will rely on the 
ability and readiness of neighbouring countries to move towards standards equivalent to those 
applied  in  the  EU  in  areas  like  safety,  security,  environmental  protection  and  worker  health 
and safety. This Communication outlines short and long term measures in all transport modes 
– road, rail, aviation, maritime and inland navigation – to link the transport systems of the EU 
and of its neighbours.  

Work  on  closer  integration  of  the  transport  market  has  started  as  part  of  the  ongoing 
negotiations  on  Association  Agreements  with  the  Eastern  Partnership  countries.8  These 
Agreements aim at the establishment of a free trade area with the EU. In the EU´s Southern 
neighbourhood, the longer term objective is to complete the Euro-Mediterranean Free Trade 
Area. As part of the enlargement strategy and in the context of accession negotiations, the EU 
assists the enlargement countries in their alignment with the EU acquis to create appropriate 
conditions  for  transport  market  integration.  For  example,  the  draft  Transport  Community 
Treaty with the Western Balkans envisages progressive market integration on the basis of the 
EU acquis in the areas of safety, security, environment and social matters.  

2.1. 

Aviation 

In the aviation sector, closer integration with the EU´s neighbours is driven by the objective 
of creating a wider European Common Aviation Area (ECAA) covering 1 billion people in 
the  EU  and  all  neighbouring  countries  on  its  southern  and  eastern  borders9.  As  most  of  the 
ENP countries lie across the sea from the EU or within a considerable distance away from EU 
capitals, air travel plays a key role in passenger transport. The annual growth in the number of 
air  passengers  between  the  EU  and  the  Southern  neighbouring  countries  has  been  6.7%  on 
average and 11.6% between the EU and Eastern neighbouring countries in the period 2004-

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Roadmap to a Single European Transport Area, COM(2011) 144, 28.3.2011 
Objectives  of  the  strategy  include  improving  interconnections  between  eight  Member  States  and  six 
neighbouring  countries  (Bosnia  and  Herzegovina,  Croatia,  Moldova,  Montenegro,  Serbia,  Ukraine), 
COM(2010) 715, 8.12.2010 
Negotiations  are  not  ongoing  with  Belarus.  Eastern  Partnership  was  launched  in  2009  to  deepen  the 
EU´s relations with Armenia, Azerbaijan, Belarus, Georgia, Moldova, Ukraine.  
Roadmap to a Single European Transport Area 

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2009. In the South, Morocco is already part of the European Common Aviation Area and has 
an average annual growth of 14.6% in air passenger transport to and from the EU. In the East, 
most  passengers  were  carried  between  Ukraine  and  the  EU  (2.7  million  out  of  3.5  million 
passengers in 2009).10  

ECAA  policy  has  been  designed  to  allow  gradual  market  opening  between  the  EU  and  its 
neighbours linked to regulatory convergence through gradual implementation of EU rules to 
offer new opportunities for operators and wider choice for consumers. The process of market 
opening and regulatory convergence take place in parallel in order to promote fair competition 
and  the  EU´s  safety,  security,  environmental  and  other  standards.  ECAA  is  implemented 
through  comprehensive  air  services  agreements  that  promote  the  overall  economic,  trade 
and tourism relations.  

Negotiations on a comprehensive aviation agreement can start once the neighbouring country 
has demonstrated its understanding of the conditions and a clear commitment to undertake the 
obligations related to joining the ECAA. 

The  EU  has  concluded  such  agreements  with  the  Western  Balkans,  Georgia,  Jordan  and 
Morocco.  Similar  agreements  are  being  negotiated  with  Israel,  Lebanon  and  Ukraine 
negotiations are expected with Tunisia in the near future. The Commission also has a mandate 
to  negotiate  a  similar  agreement  with  Algeria.  The  Commission  has  proposed  a  mandate  to 
negotiate  with  Moldova  and  intends  to  do  so  for  Azerbaijan.  Depending  on  the  interest  and 
preparedness  of  the  remaining  neighbouring  countries,  the  Commission  will  propose  the 
negotiation of similar agreements.  

The agreements concluded with the ENP countries are bilateral, whereas the agreement with 
the  Western  Balkans  is  multi-lateral.  This  multi-lateral  agreement  goes  further  than  the 
bilateral  ones,  for  example  by  direct  application  in  these  countries  of  the  judgements  of  the 
European Court of Justice which are relevant to aviation. 

With  a  view  to  increasing  regional  integration  the  next  step  is  to  develop  one  multilateral 
agreement  for  ENP  South  and  another  for  ENP  East.  Ultimately,  the  longer  term  goal  is  to 
integrate all regions and the EU into a single ECAA.  

The Single European Sky, currently under construction, will also be extended to include the 
EU´s  neighbours.  The  recognition  of  EU  law  and  the  principle  of  EU  designation  is  a 
minimum  precondition  for  this.  The  Single  European  Sky  will  improve  safety  and  reduce 
delays, costs and emissions. As part of the gradual approach to establishing a Single European 
Sky, the EU´s neighbouring countries are seeking to form or join functional airspace blocks 
(FABs)  with  EU  Member  States.  By  December  2012,  EU  Member  States  should  have 
established  nine  functional  airspace  blocks,  thereby  collectively  designing  and  rationalising 
their airspace and air routes in order better to respond to air traffic needs. 

In  the  Western  Balkans,  Bosnia  and  Herzegovina  and  Croatia  are  part  of  the  FAB  Central 
Europe initiative (FABCE). As for the other countries concerned, Albania, Egypt and Tunisia 
have associated partner status, and Jordan and Lebanon are observer states in the context of 
the  BLUE  MED  FAB  initiative.  Other  neighbouring  countries  are  expected  to  join  similar 
functional airspace blocks to complete the Single European Sky. 

10 

Eurostat 

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Several neighbouring countries are already contracting parties to the European Organisation 
for the Safety of Air Navigation (Eurocontrol).11 They participate in the work of Eurocontrol 
and as such benefit from its services. Non-members can benefit from a number of Eurocontrol 
services  on  the  basis  of  requests  and  agreements  with  this  organisation.12  Cooperation  with 
the  EU´s  neighbours  is  aimed  at  adopting  positions  in  Eurocontrol  in  line  with  those 
developed by the EU.  

Several ENP countries are already beneficiaries under the Single European Sky Air Traffic 
Management Research Programme (SESAR) which seeks to modernise the air traffic control 
infrastructure  in  Europe.  The  EU  can  also  make  the  assistance  available  to  other  ENP 
countries that are seeking to modernise their air traffic management systems.  

Improving  the  effectiveness  of  air  transport  security  in  neighbouring  regions  is  of  key 
importance  to  the  EU.  The  international  standards  in  aviation  security  laid  down  by  the 
International Civil Aviation Organisation (ICAO) should be fully implemented.13 The EU is 
already  working  with  neighbouring  countries  to  increase  their  ability  to  fulfil  those 
international  obligations.  The  EU  can  assist  in  achieving  compliance  through  the  sharing  of 
information on developing national civil aviation security programmes and the sharing of best 
practices in the implementation and quality control of aviation security measures. Regulatory 
convergence  in  the  region,  over  and  above  international  standards,  can  be  facilitated  by 
improving knowledge and implementation of the aviation security provisions of the European 
Civil Aviation Conference (ECAC) and the principles laid down in the primary legislation of 
the EU. 

Ensuring  a  high  level  of  aviation  safety  is  a  key  priority  for  the  EU´s  transport  policy. 
Neighbouring countries that have signed comprehensive air services agreements with the EU 
can also participate in the work of the European Aviation Safety Agency (EASA). In addition, 
any  European  ICAO  signatory  state  can  participate  in  the  work  of  EASA  on  the  basis  of  a 
specific agreement whereby it adopts and implements the EU aviation safety rules14.  

The  Commission  and  EASA  have  recently  proposed  the  creation  of  a  cell  within  EASA  to 
cooperate  with  some  southern  neighbourhood  countries  (Israel,  Jordan,  Lebanon,  Morocco 
and Tunisia). This seeks to harmonise the standards and procedures of air safety between the 
EU and those countries. Provision will be made for similar cooperation in order to increase 
aviation safety in the Eastern ENP countries.  

Proposed actions 

Short term (until 2013) 

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14 

Complete  ongoing  negotiations  for  comprehensive  air  services  agreements  and 
extend  negotiations  on  such  agreements  to  other  neighbouring  countries  which  are 
interested, once they are ready 

Continue  assistance  to  neighbouring  countries  for  modernisation  of  their  air  traffic 

Albania,  Armenia,  Bosnia  and  Herzegovina,  Croatia,  ,  the  former  Yugoslav  Republic  of  Macedonia, 
Moldova, Montenegro, Turkey, Serbia, Ukraine 
i.e.  the  Central  Route  Charges  Office  (CRCO),  the  Central  Flow  Management  Unit  (CFMU)  and  the 
European Air Traffic Management Database (EAD) initiatives.  
Annex 17 on Security to the Chicago Convention 
Regulation 216/2008 article 66 

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• 

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• 

management systems (SESAR) and make it available for other interested countries  

Provide information, guidance and technical assistance to neighbouring countries for 
joining one of the European functional airspace blocks (FAB) 

Assistance to neighbouring countries for achieving compliance with international and 
European aviation security standards 

Cooperate  with  the  EU´s  neighbours  with  the  aim  of  adopting  positions  in 
Eurocontrol in line with those developed by the EU  

Assist  neighbouring  countries  in  achieving  EU  and  international  levels  of  aviation 
safety 

Longer term 

• 

• 

• 

Consolidate aviation agreements with the Eastern ENP countries and Southern ENP 
countries respectively with a view to completing the ECAA 

Extend  aviation  safety  cooperation  under  EASA  to  Eastern  ENP  countries  and 
remaining Southern ENP countries  

Full integration of neighbouring countries into the Single European Sky  

2.2.  Maritime and inland navigation  

In terms of tonnage, 90% of freight movements between the EU and the rest of the world are 
seaborne. The vision for maritime transport is one of quality shipping that is competitive and 
demonstrates  a  good  environmental,  safety  and  security  performance.  This  is  a  common 
interest of the EU and of its neighbouring countries, which have regional seas in common.  

In  the  Western  Balkans,  the  draft  Transport  Community  Treaty  provides  for  cooperation  to 
ensure convergence towards the EU´s maritime standards and policies. The EU will continue 
to promote liberalisation of maritime transport services in order to create a level playing field 
with neighbouring countries. This applies in particular to the ongoing efforts to create a free 
trade area in the Mediterranean, including the freedom to provide maritime transport services.  

The  EU  promotes  its  own  and  international  requirements  in  maritime  safety,  security  and 
environmental protection. To ensure a level playing field in the seas bordering the EU, it is 
important  that  the  EU´s  neighbouring  countries  ratify  and  properly  implement  international 
conventions  regarding  maritime  safety  and  security,  as  well  as  social  and  environmental 
conditions, and align with EU standards. For this purpose the Commission provides technical 
assistance.  The  EU  also  seeks  active  cooperation  with  neighbouring  countries  under  the 
auspices of the International Maritime Organisation (IMO). 

Lower  levels  of  safety,  security  and  environmental  and  social  rules,  fiscal  dumping  and 
discriminatory  charging  practices  for  the  use  of  hinterland  connections  in  the  neighbouring 
countries  can  distort  fair  competition.  The  purpose  of  cooperation  with  the  neighbouring 
countries  is  to  avoid  this  potential  distortion  by  establishing  similar  rules.  EU  companies 
benefit directly from this approach.  

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In order to enhance maritime safety and security, as well as protection of the environment, 
the  EU  will  continue  technical  assistance  to  the  neighbours  under  regional  projects 
SAFEMED  in  the  South  and  SASEPOL  in  the  East.  In  addition,  the  EU  is  discussing  a 
Commission  proposal  to  extend  the  mandate  of  the  European  Maritime  Safety  Agency 
(EMSA) to provide technical assistance to ENP countries.  

To  further  improve  maritime  safety  and  security  and  the  response  to  incidents  at  sea,  the 
Commission  will  promote  the  participation  of  the  neighbouring  countries  in  the  EMSA-
operated vessel traffic monitoring system SafeSeaNet and the acquisition by these countries 
of  the  maritime  surveillance  infrastructure  which  is  needed  for  participation.  In  addition,  to 
better  respond  to  illegal  discharges  from  ships  and  identify  polluters  in  the  waters,  the 
Commission will promote the participation of the neighbouring countries in the CleanSeaNet 
satellite service operated by EMSA. CleanSeaNet already offers all EU coastal Member States 
and  candidate  countries,  as  well  as  Iceland  and  Norway,  a  near  real-time  marine  oil  spill 
service by analysing satellite pictures.  

Generally  speaking,  the  EU´s  neighbouring  countries  are  under-performing  in  their  role  as 
Flag  States.  Under  the  terms  of  the  Paris  Memorandum  of  Understanding  on  Port  State 
Control,  which  is  the  most  important  index  for  flag  state  performance,  Azerbaijan,  Algeria, 
Tunisia and Morocco are on the grey list, and Ukraine, Georgia, Moldova, Albania, Lebanon, 
Libya, Syria and Egypt are on the black list.  

In  order  to  improve  their  implementation  of  Flag  State  responsibilities,  the  blacklisted 
neighbouring  countries  are  encouraged  to  consider  the  benefits  of  applying  for  the  IMO 
Member State  Audit Scheme. IMO  audit is currently  voluntary,  but  will  become  mandatory 
from 2014. The EU will continue its assistance to the neighbours to improve their Flag State 
performance.  

The  European  Maritime  Transport  Space  without  barriers  will,  in  the  longer  term,  be 
developed into a "Blue Belt" of free maritime movement in and around Europe. The aim is to 
simplify  formalities  for  ships  travelling  between  EU  ports.  That  includes  putting  in  place 
electronic  systems  for  data  exchanges  between  ship  and  shore.  In  line  with  the  "Blue  Belt" 
concept,  cooperation  with  the  neighbouring  countries  aims  to  simplify  administrative 
procedures  for  short  sea  shipping,  establish  an  administrative  single  window  for  port 
formalities and ensure inter-operability of information systems.  

Seafarers  of  the  neighbouring  countries  that  comply  with  the  applicable  international 
standards 
(International  Convention  on  Standards  of  Training,  Certification  and 
Watchkeeping for Seafarers) may work on EU ships. At the request of EU Member States and 
with  the  support  of  EMSA,  the  Commission  assesses  seafarer  certification  procedures  and 
training  establishments  in  the  neighbouring  countries.  The  EU  has  recognised  most  of  the 
neighbouring  countries.15  The  Commission  will  continue  to  provide  technical  assistance  to 
neighbouring countries to improve the training of seafarers.  

As  a  contribution  to  a  more  strategic  approach  to  maritime  affairs  in  cooperation  across  all 
sectors including transport in the Mediterranean, the Commission together with the IMO and 
the  EIB  has  launched  a  project  to  identify  pilot  actions  to  improve  cooperation  between 

15 

The EU has already recognised Algeria, Croatia, Iran, Israel, Tunisia, Turkey and Ukraine. A number of 
other countries are under assessment, notably Azerbaijan, Egypt, Jordan and Morocco. The recognition 
of Georgia was withdrawn in 2010.  

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maritime  actors  in  the  areas  of  maritime  safety  and  surveillance,  social  aspects  and  training 
and investments in maritime infrastructure.  

The  aim  of  the  EU´s  inland  navigation  policy  is  to  achieve  efficient  and  sustainable 
waterway  transport.  It  is  important  that  the  EU´s  neighbouring  countries  apply  relevant 
international conventions to ensure equivalence with the EU levels of inland navigation safety 
as  well  as  environmental  and  social  conditions.  The  Commission  will  assist  neighbouring 
countries in achieving these objectives. 

In order to promote safety, efficiency and data exchange, the Commission will cooperate with 
the relevant neighbouring countries under the River Information Services. 

As  regards  navigation  on  the  Danube,  the  EU  Strategy  for  the  Danube  Region  proposes 
actions  to  exploit  fully  the  market  potential  of  inland  navigation  in  the  region  that  involves 
five neighbouring countries, Bosnia and Herzegovina, Croatia, Moldova, Serbia and Ukraine. 
The Commission supports the modernisation of the Danube Commission as part of the revised 
Belgrade Convention. The text of that Convention, to which the Commission has negotiated 
the  EU´s  accession,  has  been  agreed,  but  signature  is  still  pending.  The  Commission 
encourages the two signatory States to resolve the dispute.  

Proposed actions  

Short term (until 2013) 

• 

• 

• 

• 

• 

• 

Help the neighbouring countries to improve their Flag State performance and comply 
with safety, security and social standards 

Extend  the  mandate  of  EMSA  in  order  to  provide  technical  assistance  to  the 
neighbouring countries  

Promote the participation of neighbouring countries in SafeSeaNet and CleanSeaNet  

Work together with the neighbouring countries with a view to simplifying procedures 
for  short  sea  shipping  in  line  with  the  European  Maritime  Transport  Space  and  the 
"Blue Belt" concept 

Assist neighbouring countries in achieving EU and international standards in inland 
navigation  

Actively engage with a view to re-launching the process of modernising the Danube 
Commission 

Longer term  

• 

Promote  closer  integration  of  the  neighbouring  countries  to  the  “Blue  Belt”  of  free 
maritime movement in and around Europe 

2.3. 

Road 

Road transport plays a key role in trade flows with those neighbouring countries with which 
the  EU  shares  a  land  border.  However,  cumbersome  administrative  procedures  at  border 
crossings remain an obstacle to the efficient flow of goods between the EU and its neighbours 
in  the  East.  On  average,  40%  of  total  transportation  time16  is  lost  at  the  borders  due  to 

16 

Assessment by International Road Transport Union 

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discrepancies  in  administrative  procedures.  Facilitation  of  border  crossing  procedures  is 
therefore of key importance in stimulating trade by cutting time and costs.  

The  Commission  has  planned  strategic  frameworks  for  customs  cooperation  with  Belarus, 
Moldova and Ukraine to ensure trade facilitation, combined with the protection of citizens at 
the EU´s Eastern border, by means of a set of priority actions. These include safe and fluid 
trade lanes, risk management and combating fraud, as well as support for the modernisation of 
customs infrastructure and procedures.  

Low levels of road safety in the neighbouring countries are an issue of direct concern for the 
EU. Improvement of road safety through training, sharing of best practices, awareness raising 
and promoting safer road infrastructure, including secure parking, constitute a priority for the 
EU´s  cooperation  with  the  neighbouring  regions.  The  Commission  will  investigate  the 
possibility of extending common EU-wide intelligent transport systems services (e.g., eCall17) 
to neighbouring countries. Mortality due to road traffic injuries is considerably higher in most 
Eastern Partnership countries (21.5 per 100,000 persons in Ukraine, 16.8 in Georgia, 15.1 in 
Moldova  )  than  on  average  in  Europe  (6.1  per  100,000  persons).18  The  same  applies  to 
Southern ENP countries.  

To  ensure  a  level  playing  field  on  the  global  automotive  market,  it  is  important  that  the 
neighbouring countries ratify and apply the EU and international standards on vehicle safety 
and  environmental  performance19.  The  EU  seeks  active  cooperation  with  neighbouring 
countries on this in UNECE.  

important 

Road  transport  services  remain 
in  ensuring  an  effective  cross-border 
manufacturing  supply  chain,  especially  on  shorter  distances.  Unlike  in  the  aviation  sector, 
where  the  EU  and  its  neighbouring  countries  have  moved  towards  market  opening,  only 
modest  steps  have  been  taken  in  liberalising  mutual  road  market  access.  Most  EU  Member 
States  have  bilateral  road  transport  agreements  with  neighbouring  third  countries.  Those 
agreements  ensure  mutual  market  access  based  on  quotas.  At  multilateral  level,  quotas  are 
also  allocated  by  the  International  Transport  Forum  (ex-ECMT),  but  these  account  for  only 
5% of total operations.  

Several neighbouring countries have expressed interest in increased road market access with 
the EU. The Union should exercise its external competence in this field with a view to further 
market integration with these countries and also taking equal account of the relevant safety, 
security, environmental and social aspects. The main objective of such an initiative would be 
gradually to remove quantitative restrictions in exchange for the implementation of standards 
that guarantee the quality of road transport services between the Union and the neighbouring 
countries, which is a concept not included in the current bilateral regimes. The draft Transport 
Community Treaty with the Western Balkans provides for a number of Community permits 
allowing road market access for trucks. 

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19 

"Bringing eCall back on track - Action Plan (3rd eSafety Communication)" , COM(2006)0723 
Data on ENP countries from World Bank Report Confronting “Death on Wheels” Making Roads Safe 
in  Europe  and  Central  Asia  (No.  51667-ECA,  November  2009),  data  on  Member  States  from  CARE 
European Road Accident Database  
Laid  down  by  the  World  Forum  for  Harmonisation  of  Vehicle  regulations  of  the  United  Nations 
Economic Commission for Europe (UNECE) 

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To  ensure  that  similar  standards  relating  to  road  transport  are  followed  in  the  EU  and 
neighbouring  countries,  it  is  important  that  the  implementation  of  the  digital  tachograph  in 
neighbouring countries is in line with the requirements of the UN Agreement on driving time 
and rest period rules in international road transport (AETR20). All non-EU AETR contracting 
parties (all Eastern Partnership countries except Georgia), were legally bound to introduce the 
digital tachograph in newly registered vehicles as of 2010. The EU has assisted Eastern ENP 
countries in the deployment of digital tachographs. In order to bring the provisions of AETR 
fully into line with the EU´s social rules in the road transport sector, the Commission intends 
to seek a mandate for the EU to become a contracting party to the AETR.  

Passenger services by road contribute to the mobility of European citizens and to the flow of 
tourists. Cooperation with neighbours in the road sector can facilitate passenger transport by 
bus  and  coach  by  simplifying  the  authorisation  of  bus  and  coach  lines  and  harmonising  the 
level of service quality and safety.  

In  this  respect,  the  scope  of  the  Interbus  agreement21  should  be  enlarged  to  cover  not  only 
occasional carriage international passengers by coach and bus, but also regular carriage and 
extended to neighbouring countries that are interested and ready to join.  

Proposed actions 

Short term (until 2013) 

• 

• 

• 

• 

• 

Assist AETR contracting parties in digital tachograph deployment 

Help the neighbouring countries to develop and implement actions that increase road 
safety 

Study  the  impact  of  gradual  road  market  opening  with  selected  neighbouring 
countries 

Strengthen  customs  cooperation  with  Belarus,  Moldova  and  Ukraine  to  facilitate 
border crossings  

Seek a mandate for the EU to become a contracting party to the AETR 

Longer term 

• 

Enlarge the scope of Interbus Agreement to include international regular carriage of 
passengers by coach and bus and extend it to cover ENP countries  

2.4. 

Rail 

The  most  significant  rail  freight  flows  between  the  EU  and  its  neighbouring  countries  are 
East-West.  In  the  last  decade,  there  has  been  a  7%  increase  in  the  volume  of  rail  freight 
between  the  EU  and  its  immediate  neighbours  in  the  East  (Belarus,  Moldova,  Ukraine). 
Growth of up to 40% in rail freight demand with the EU´s Eastern Neighbours is forecast by 
2020.22  

20 
21 
22 

Agreement Concerning the Work of Crews of Vehicles Engaged in International Road Transport 
Agreement on the international occasional carriage of passengers by coach and bus 
Report on "Situation and perspectives of the rail market" conducted for the Commission in 2010 

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In  the  EU,  the  market  has  been  completely  opened  since  2007  for  rail  freight,  and  since 
January  2010  for  international  passenger  services.  Opening  of  the  rail  freight  market  has 
enabled  new  companies  to  enter  the  market,  lowered  the  prices  and  initially  increased 
volumes  despite  the  effects  of  the  economic  crisis.  A  further  boost  could  be  given  to  the 
railway  sector  by  strengthening  cooperation  with  the  EU´s  neighbouring  countries  on  rail 
transport.  

Rail  freight  could  have  a  competitive  advantage  over  other  transport  modes  on  long  Euro-
Asian  corridors,  but  this  is  adversely  affected  by  physical  and  non-physical  barriers.  Even 
though  cargo  flows  between  the  EU  and  Belarus,  Ukraine  and  Moldova  have  increased  in 
recent  years,  it  will  remain  important  to  focus  future  cooperation  on  key  issues  such  as 
improving infrastructure and border crossing procedures, which without further development 
might  endanger  future  growth  in  cargo  volumes.  Fair,  non-discriminatory,  transparent  and 
efficient charging systems for the use of railway infrastructure along the corridors between the 
EU, its Eastern neighbours and Asia are necessary to exploit the full potential of rail freight 
traffic.  The  Commission  encourages  regional  cooperation  on  this  issue.  Physical  barriers  to 
trade  and  freight  growth  also  include  the  lack  of  interoperable  rail  systems,  insufficient 
technology and rolling stock in poor condition. The efficiency of passenger transport by rail 
can  be  increased  through  better  cooperation  on  border  crossings,  without  requiring 
considerable infrastructure investments. 

Action  is  needed  to  minimise  the  effects  of  a  major  technical  barrier  to  trade,  namely  the 
difference  between  the  gauges  used  in  Belarus,  Moldova  and  Ukraine  (1520  mm)  and  the 
standard  gauge  used  in  most  of  the  EU  (1435  mm).  The  difference  is  time  consuming  and 
slows  down  freight  and  passenger  transport  flows.  As  a  first  step,  the  1520/1524  mm  track 
gauge  system  should  be  specified  in  the  standards  developed  by  the  European  Railway 
Agency (ERA). This would create a suitable basis for the whole of industry to supply systems 
and products in conformity  with  those  standards. To enable this, the EU  will further pursue 
technical  cooperation  with  OSJD  countries23  through  the  ERA.  To  strengthen  cooperation 
with  the  southern  neighbourhood  countries,  ERA  is  involving  independent  experts  from 
Algeria, Morocco and Tunisia to work on interoperability issues.  

A second step would be to study trans-shipment (from 1520 mm to 1435 mm and vice versa) 
practices  and  try  to  improve  them  including  through  research.  For  this  purpose,  different 
formats  of  cooperation  can  be  used  to  assist the  neighbouring  countries to  comply  with  EU 
standards.  Closer  cooperation  will  help  to  increase  interoperability,  ensure  a  level  playing 
field in terms of safety, and prepare the ground for possible market opening in the future. The 
negotiated  draft  Transport  Community  Treaty  with  the  Western  Balkans  provides  for  the 
opening of the rail market for passenger or freight services for operators both in the EU and in 
South East Europe.  

To  ensure  interoperability  and  safety  of  railway  networks  in  the  EU  and  its  neighbouring 
countries,  the  EU  is  also  promoting  the  deployment  of  the  European  Rail  Traffic 
Management  System  (ERTMS)  in  its  neighbourhood.  Besides  providing  a  system  that 
ensures  smooth  rail  traffic  with  fewer  costs,  an  additional  advantage  of  ERTMS  is  the 

23 

Out of ENP countries, Azerbaijan, Belarus, Georgia, Moldova and Ukraine are members of OSJD. Out 
of  EU  MSs  Bulgaria,  Czech  Republic,  Estonia,  Hungary,  Latvia,  Lithuania,  Poland,  Slovakia  and 
Romania are members of OSJD.  

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availability of a wider range of product suppliers, bringing a wider choice for governments, 
rail operators and infrastructure managers.  

Reforms  that  seek  to  bring  the  rail  sector  of  neighbouring  countries  closer  to  the  EU´s 
standards (safety, security, environmental, social and interoperability) should continue in the 
EU´s neighbouring countries. This would not only benefit passenger and freight transport, but 
would also attract more investment to the rail sector. For EU companies, the high demand for 
rolling  stock  modernisation  in  neighbouring  countries  creates  new  market  opportunities. 
Reforms are also a pre-condition for any market opening in the future.  

Despite  the  relatively  large  market  share  of  rail  in  Ukraine,  Belarus  and  Moldova  the  rail 
freight  market  has  not  yet  been  liberalised.  All  the  Western  Balkan  countries  and  Turkey 
have  already  initiated  the  reform  process.  The  Commission  encourages  the  Southern  ENP 
countries to continue their railway reforms.  

Proposed actions 

Short term (until 2013) 

• 

• 

• 

Specify  the  1520/1524  mm  track  gauge  system  in  the  standards  (technical 
specifications for interoperability) developed by the ERA. 

Promote  the  deployment  of  the  European  Rail  Traffic  Management  System 
(ERTMS) in neighbouring countries. 

Promote the participation of enlargement and neighbouring countries in the activities 
of the ERA  

Longer term  

• 

• 

Study  trans-shipment  (from  1520  mm  to  1435  mm  and  vice  versa)  practices  at 
connecting points and try to improve them, including via research activities  

Explore the possibility of an opening of the rail market with the ENP countries  

3. 

INFRASTRUCTURE CONNECTIONS  

To improve and promote infrastructure connections, the Commission will focus on three key 
elements: defining the networks, prioritising projects and mobilising financing.  

Networks 

As a first step in promoting infrastructure connections, the strategic transport networks of the 
neighbouring  regions  need  to  be  defined.  These  regional  networks  will  be  the  basis  for  the 
EU's renewed cooperation on transport infrastructure with neighbouring countries. They will 
serve as an extension of the revised Trans-European Transport network (TEN-T) beyond the 
EU’s border and connect countries in the region. Those networks should promote the regional 
integration between the countries and reflect future traffic flows. 

Work  in  the  Western  Balkans,  Turkey  and  in  the  EU´s  Southern  neighbourhood  is  at  an 
advanced  stage.  The  Commission  has  cooperated  with  these  neighbouring  countries  in 
identifying transport infrastructure networks covered by transnational axes. Cooperation in the 

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Western Balkan region has led to the development of the South East Europe Comprehensive 
Regional  Transport  Network.  The  draft  Transport  Community  Treaty  envisages  further 
development  of  this  network.  Turkey  is  developing  a  transport  network  in  cooperation  with 
the  Commission.  In  the  Southern  neighbourhood,  Euro-Mediterranean  transport  cooperation 
has led to the definition of the Trans-Mediterranean Transport Network.  

The Commission  will work  with the  neighbouring  countries in the East to define a regional 
transport  network,  building  on  the  2007  Commission  Communication24,  TRACECA25 
corridors  and  negotiations  on  Association  Agreements  that  include  a  transport  chapter. 
Regional  transport  networks  in  the  East  that  connect  with  TEN-T  and  networks  of  the 
neighbours  of  the  neighbours  in  Central  Asia  are  particularly  important  for  facilitating 
alternative connections between Europe and Asia.  

To  ensure  efficient  planning  and  monitoring  of  TEN-T,  the  Commission  has  developed  the 
TENtec  Information  system  that  includes  traffic  data  monitoring  and  forecasts  from  the 
Member States as well as Croatia and Turkey. The Commission is now enlarging the scope of 
TENtec  to  include  transport  infrastructure  data  in  the  ENP  and  other  Western  Balkan 
countries. This will enable TENtec to be used as a tool for planning the extension of TEN-T 
beyond the borders of the EU.  

The Motorways of the Sea concept represents the maritime dimension of the Trans-European 
transport network. The EU uses this concept in developing maritime based intermodal freight 
transport  connections  with  the  neighbouring  countries.  The  Motorways  of  the  Sea  concept 
also  promotes  regional  integration,  thereby  creating  better  connections  between  the 
neighbouring countries themselves.  

Several technical assistance projects have been pioneered in the Mediterranean, Black Sea and 
Caspian  Sea  regions  for  this  purpose.  Pilot  links  in  the  Mediterranean  have  already 
contributed to the introduction of the benefits of efficient short sea shipping between the EU´s 
Southern  Member  States  and  the  Mediterranean  partner  countries  in  the  form  of  reduced 
transport time and costs. With the key objective of facilitating trade, those connections will be 
developed  in  both  the  Southern  and  Eastern  neighbourhood  with  continued  technical 
assistance from the EU.  

Projects 

As a second step, priority projects of regional and EU interest need to be identified on the 
regional transport networks. Priority projects have been identified in the Western Balkan and 
Southern Neighbourhood regions by using a number of selection criteria.  

In the Eastern neighbourhood, a similar project prioritisation process has been launched both 
in the context of the TRACECA programme and in consultations held with the neighbouring 
countries in preparing this Communication. The same selection criteria as those for projects in 
the Western Balkan and Southern neighbourhood regions have been used.  

24 
25 

COM(2007) 32, 31.1.2007 
Originally  a  Community  programme,  but  regulated  since  1998  by  a  multilateral  agreement  with 
intergovernmental structures. It has played a key role in developing transport corridors between Europe 
and  Asia  and  includes  Armenia,  Azerbaijan,  Bulgaria,  Georgia,  Iran,  Kazakhstan,  Kyrgyzstan, 
Moldova,  Romania,  Tajikistan,  Turkey,  Ukraine,  and  Uzbekistan  as  members.  Iran  does  not  benefit 
from EU funding. 

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In  the  renewed  approach,  projects  should  have  a  regional  and  EU  interest,  be  located  on  a 
regional  network,  benefit  from  a  firm  commitment  by  the  neighbouring  countries,  aim  to 
alleviate  bottlenecks  for  international  traffic  such  as  on  border  crossings,  and  improve 
connections  between  the  revised  TEN-T  and  the  regional  network.  The  projects  should  also 
help to increase integration and interoperability between the transport systems of the EU and 
its neighbours, lead to reduced transport costs and time, facilitate international freight flows 
and increase safety, security and protection of the environment.  

The  Commission,  together  with  the  International  Financial  Institutions,  will  screen  projects 
submitted  by  neighbouring  countries  by  using  these  criteria.  As  a  result  of  this  work,  a 
pipeline of priority projects that can be considered for implementation by the Commission and 
the International Financial Institutions will be gradually established.  

Financing  

As a third and last step in building the actual interconnections, financing for mature priority 
projects needs to be made available.  

The transport infrastructure financing needs in the EU´s neighbouring regions are higher than 
what the EU, other donors, neighbouring countries or the IFIs can finance alone. To alleviate 
the  funding  gap,  cooperation  between  all  these  partners  needs  to  be  enhanced,  including 
through better use  of existing innovative  financing instruments that the EU has put in place 
for  its  neighbouring  regions.  Increased  use  of  EU  programmes  should  be  considered  for 
improving transport connections with the neighbouring countries.  

The  Commission's  recent  Communication26  on  a  Budget  for  Europe  2020  suggests  that 
infrastructure  projects  of  EU  interest  that  pass  through  neighbourhood  and  pre-accession 
countries  could  in  the  future  be  linked  and  financed  through  the  new  Connecting  Europe 
facility, allowing financing from different headings of the EU budget under one integrated set 
of rules.In the Western Balkan region, the Western Balkans Investments Framework (WBIF) 
combines  grants  from  multiple  sources  with  loans  to  co-finance  environment,  energy  and 
transport  infrastructure  projects.  The  Commission  will  consider  giving  priority  to  the 
financing  of  projects  that  help  to  develop  the  South  East  Europe  Comprehensive  Regional 
Transport  Network.  The  WBIF  has  already  approved  22  transport  projects  for  which  the 
allocated  EUR  37  million  of  grants  could  potentially  mobilise  a  considerable  amount  of 
investments.  In  addition,  the  Instrument  for  Pre-Accession  Assistance  (IPA)  provides 
financing for projects that help to link the regional transport network in the Western Balkans 
and the TEN-T.  

In the Southern and Eastern neighbourhood regions, the Neighbourhood Investment Facility 
(NIF) combines grants from the EU budget and loans from international financial institutions 
to  provide  financing  to  key  infrastructure  projects  in  the  transport,  energy,  social  and 
environment  sector  as  well  as  for  private  sector  development.  To  date,  around  25%  of  the 
EUR  745  million  available  under  the  NIF  in  the  current  financial  perspective  has  been 
allocated for transport infrastructure projects. Until 2013, the NIF still has EUR 465 million 
uncommitted.  The  Commission  will  work  together  with  the  IFIs  and  the  neighbouring 
countries to enhance the submission of transport projects for financing by the NIF.  

26 

COM(2011) 500, 29.06.2011 

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Priority  infrastructure  projects  that  are  considered  mature  by  the  Commission  and  the 
international  financial  institutions  will  be  submitted  to  the  NIF.  This  will  allow  the  NIF  to 
focus more closely on key interconnection projects. The Commission will also seek the wider 
involvement of international financial institutions in the work of the NIF. 

In March 2011, the Commission, the European Investment Bank and the European Bank for 
Reconstruction  and  Development  signed  a  Memorandum  of  Understanding  on  cooperation 
outside  the  EU,  which  includes  the  extension  of  TEN-T  as  one  of  the  actions.  The 
Commission will also seek closer cooperation with the World Bank and other interested IFIs 
on transport issues outside the EU. Closer cooperation  with the IFIs will involve  sharing of 
expertise and information on financial resources in the transport sector, screening of projects 
and  preparing  project  pipelines.  The  Commission  and  the  Banks  will  also  support 
neighbouring  countries  in  developing  transport  strategies,  help  them  to  identify  priority 
infrastructure projects and prepare project proposals. The Commission's political leverage in 
the  region  combined  with  the  financial  capacity  of  the  banks  can  give  a  boost  to  transport 
project financing in the neighbouring countries.  

The Commission will also promote interconnections with its neighbouring countries through 
other existing instruments, under the bilateral and regional support to neighbouring countries 
from the European Neighbourhood Policy Instrument. Those include TAIEX, Twinning and 
ENPI cross-border cooperation. 

Proposed actions 

Short term (until 2013) 

• 

• 

• 

• 

• 

• 

• 

• 

Define  strategic  transport  networks  in  the  Eastern  Partnership  region  with 
connectivity to revised TEN-T  

Adapt the planning of future Trans-Mediterranean transport network to the context of 
the revised TEN-T policy 

Prepare a potential pipeline of transport projects of European interest in the Eastern 
Neighbourhood  countries  prioritising  projects  that  connect  the  neighbouring 
countries with the EU  

Strengthen 
Institutions in the Eastern and Southern ENP 

the  Commission´s  cooperation  with 

the  International  Financial 

Increase  the  uptake  of  transport  interconnection  projects  by  the  Neighbourhood 
Investment Facility and start financing of mature projects  

In  the  Western  Balkans,  give  priority  to financing projects that help to develop the 
South East Europe Comprehensive Regional Transport Network 

Enlarge  the  scope  of  the  TENtec  Information  System  to  cover  all  countries  in  the 
neighbouring regions  

Developing  further  maritime  based  connections  through  the  Motorways  of  the  Sea 
concept  

Longer term  

• 

Continue  developing  the  pipeline  of  priority  projects,  by  placing  emphasis  on 
projects that promote regional integration and better connections with the EU 

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4. 

FRAMEWORK FOR IMPLEMENTING POLICY AND INFRASTRUCTURE COOPERATION  

A framework for following up the implementation of this Communication together with the 
neighbouring  countries,  both  as  regards  planning  of  transport  infrastructure  and  policy 
cooperation,  needs  to  be  defined  for  all  regions  concerned.  Such  a  framework  has  already 
been established in both the Western Balkan and southern neighbourhood regions.  

In the Western Balkans, regional transport cooperation is dealt with within the framework of 
the  South  East  Europe  Transport  Observatory  (SEETO).  SEETO  has  defined  a  regional 
transport network, and it identifies priority projects of regional interest in a multi annual plan 
on  a  rolling  basis  (38  priority  projects  identified  for  2011-2015)  and  follows  up  transport 
policy  measures.  The  draft  Transport  Community  Treaty  also  provides  for  identification  of 
priority  projects  of  regional  interest.  The  work  of  SEETO  can  contribute  to  the 
implementation of the EU Strategy for the Danube Region.  

In  the  Southern  Neighbourhood,  transport  cooperation  is  guided  by  the  Regional  Transport 
Action  Plan  for  the  Mediterranean  region  2007-2013  within  the  Euromed  framework.  In 
Euromed,  participant  countries  plan  their  transport  cooperation  together  and  develop  the 
Trans-Mediterranean  Transport  network  with  the  help  of  the  Commission  and  International 
Financial  Institutions.  This  has  already  led  to  the  identification  of  18  priority  projects.  The 
Euromed  framework  also  follows  up  cooperation  on  transport  policy  measures.  In  addition, 
cooperation in implementing the recent EU offer for Partnership for Democracy and Shared 
Prosperity with the Southern Mediterranean will be deepened.27 

As regards the Eastern Partnership countries, a number of initiatives have been launched. The 
TRACECA programme covers, amongst others, Azerbaijan, Armenia, Georgia, Moldova and 
Ukraine, while Belarus is covered by the Northern Dimension Partnership on Transportation 
and Logistics (NDPTL). Following the best practice of planning frameworks in the Western 
Balkans and Southern Neighbourhood regions, there is a need for a similar framework to plan 
transport infrastructure cooperation which is specific to the six Eastern Partnership countries.  

The Eastern Partnership was established in 2009 with four thematic platforms to deepen the 
EU's relations with its neighbours in the East. Transport cooperation has so far been part of a 
platform dedicated to economic cooperation. In view of the identified need to putting in place 
a  framework  for  planning  transport  cooperation  that  is  specific  to  the  Eastern  Partnership 
countries,  the  Commission  will  establish  an  Eastern  Partnership  Transport  Panel.  This 
transport panel will bring together the European Commission, the neighbouring countries, the 
Member States and the IFIs to discuss reforms that are needed for closer market integration, 
planning  of  transport  networks  and  preparing  the  pipeline  of  infrastructure  projects.  It  will 
also  coordinate  and  streamline  the  technical  working  groups  of  the  relevant  existing 
frameworks. 

The work of the Eastern Partnership Transport Panel will lead transport cooperation with the 
Eastern Partnership countries and will receive input from other existing transport initiatives in 
the region, such as TRACECA programme and the EU Strategy for the Danube Region. As 
regional cooperation has been carried out under various initiatives that have been running in 

27 

COM(2011) 200, 8.03.2011 

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parallel  until  now,  the  Eastern  Partnership  Transport  Panel  will  set  out  a  new  approach  for 
cooperating  in  a  coordinated  manner  on  all  transport  issues  relating  to  the  eastern 
neighbourhood countries.  

Proposed actions 

Short term (until 2013) 

• 

• 

Create  a  Transport  Panel  under  the  Eastern  Partnership  to  lead  both  policy 
cooperation and transport infrastructure planning  

Sign the Transport Community Treaty with the Western Balkans  

5. 

CONCLUSIONS 

This  Communication  outlines  the  Commission's  renewed  approach  to  transport  cooperation 
with the ENP countries in the wider context of a strengthened ENP policy and taking elements 
from  the  enlargement  process  as  a  model.  It  also  identifies  actions  to  improve  cooperation 
with the enlargement countries.  

The  Commission  will  closely  follow  up  the  implementation  of  the  actions  identified  in  this 
Communication  with  the  enlargement  and  ENP  countries  under  the  enlargement  policy, 
Eastern Partnership and Euromed frameworks. It will do so in close cooperation with the ENP 
and  the  enlargement  countries,  as  well  as  the  Member  States  and  IFIs.  In  line  with  the 
Roadmap  to  a  Single  European  Transport  Area,  cooperation  with  the  neighbouring  regions 
will focus on removing the barriers to transport and on operating a transport system with high 
safety, security, social and environmental standards, as regards both infrastructure and market 
integration aspects.  

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