COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL INSTRUMENT FOR PRE-ACCESSION ASSISTANCE (IPA) REVISED MULTI-ANNUAL INDICATIVE FINANCIAL FRAMEWORK FOR 2013
Date: 2012-10-10
Institutions: European Commission
Subjects: Albania, Bosnia and Herzegovina, Croatia, Iceland, Kosovo, Montenegro, North Macedonia, Serbia, Türkiye, distribution of EU funding, pre-accession aid

EUROPEAN 
COMMISSION 

Brussels, 10.10.2012  
COM(2012) 581 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

INSTRUMENT FOR PRE-ACCESSION ASSISTANCE (IPA) 
REVISED MULTI-ANNUAL INDICATIVE FINANCIAL FRAMEWORK FOR 2013 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

INSTRUMENT FOR PRE-ACCESSION ASSISTANCE (IPA) 
REVISED MULTI-ANNUAL INDICATIVE FINANCIAL FRAMEWORK FOR 2013 

Introduction 

The  Multi-annual  Indicative  Financial  Framework  (MIFF)  for  the  Instrument  for  Pre-
accession Assistance (IPA) is designed to provide information on the indicative breakdown of 
the  overall  IPA  envelope  proposed  by  the  Commission  in  accordance  with  Article  5  of  the 
IPA  Regulation  (EC)  No  1085/20061.  It  acts  as  the  link  between  the  political  framework 
within  the  enlargement  package  and  the  budgetary  process.  The  Multi-annual  Indicative 
Planning  Documents  (MIPD)  established  for  each  beneficiary  country,  for  the  multi-
beneficiary programme and for the cross–border cooperation component, through which pre-
accession aid is delivered, take into account the indicative breakdown proposed in the MIFF.  

The MIFF is based on a rolling three-year programming cycle. Under normal circumstances, a 
MIFF for years N, N+1 and N+2 will be presented in the last quarter of year N-2 as part of the 
enlargement  package,  representing  a  proposed  financial  translation  of  the  political  priorities 
set out within the package itself, taking into consideration the financial framework. As 2013 is 
the  last  budgetary  year  of  IPA,  this  MIFF  covers  only  changes  foreseen  in  that  year.  It 
indicates  the  allocation  of  the  envelope  for  pre-accession  assistance  by  country  and  by 
component  for  2013  and  also  gives  an  indication  of  the  multi-beneficiary  programme 
envelope and support expenditure. 

As  in  previous  years,  the  MIFF  is  published  based  on  the  current  status  of  the  countries 
concerned.  As  such,  it  reflects  the  change  of  status  of  Serbia  which  became  a  candidate 
country in February 20122, as well as the anticipated date of accession of Croatia on 1 July 
2013.  

The  overall  political  priorities  for  pre-accession  are  set  out  in  the  Accession  and  European 
Partnerships, the annual progress reports and the enlargement strategy paper contained in the 
enlargement package presented to the European Parliament and the Council each autumn. 

Strategic Financial Programming  

1. 

ALLOCATION OF FUNDS BETWEEN COUNTRIES 

The  starting  point  for  allocations  in  2007  was  a  commitment  by  the  Commission  to  ensure 
that no beneficiary country would receive less in 2007 than they did in 2006 and furthermore 
that Albania and Bosnia and Herzegovina should receive no less than the annual average of 

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OJ L 201, 31.7.2006, p. 82-93 
Opening  of  components  III,  IV  and  V  for  Serbia  is  subject  to  the  adoption  by  the  Council  and  the 
European  Parliament  of  the  amendment  to  Regulation  (EC)  No  1085/2006  as  proposed  by  the 
Commission (COM(2012) 329 of 20 June 2012).  

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the funding each received between 2004 and 2006. This latter point reflected the fact that the 
funding for these countries was frontloaded in 2004.  

The  figures  for  2008  onwards  have  been  calculated  on  the  basis  of  per  capita  allocations 
which have been quoted in the past as a proxy for needs and impact. Against this measure, the 
per capita levels for each of the potential candidates in the Western Balkans increased during 
the course of  the current  financial framework to above the 2004-2006 per capita average of 
received  under  CARDS3.  The  global  breakdown  of  funds  between 
€23  (in  2004  prices) 
countries  has  been  respected  with  the  exception  of  Kosovo4  which  received  increased  IPA 
funding.  In  2008,  €60  million  were  granted  by  th e  budget  authority  as  part  of  a  wider 
mobilisation  of  new  funds  to  support  the  stability  and  development  of  Kosovo.  This  was 
supplemented  by  a  transfer  of  a  further  €60  mill ion  from  unused  macro-financial  assistance 
(MFA) appropriations. In 2009, an additional €40 million was committed as a follow up to the 
Donors' Conference which took place in July 2008.  

For Croatia and the former Yugoslav Republic of Macedonia a level of over €30 per capita (in 
2004 prices) is allocated. This level is maintained throughout the period for Croatia. Given its 
expected accession on 1 July 2013, the 2013 allocation for Croatia under IPA will be reduced 
to  half  the  amounts  originally  foreseen  for  that  yera,  except  for  the  rural  development 
component where the full 2013 allocation will be maintained at the level originally envisaged. 
For the former Yugoslav Republic of Macedonia, the funding in per capita terms continues to 
increase,  reflecting  a  minimum  level  of  funding  needed  to  build  adequate  administrations, 
irrespective of the size of the country. 

For  Montenegro,  the  per  capita  levels  of  funding  are  higher  than  for  the  other  countries, 
reflecting  a  minimum  level  of  funding  needed  for  building  adequate  administrations, 
irrespective of the size of the country. 

For  Turkey,  taking  into  account  the  size  and  absorption  capacity  of  the  country,  there  is  a 
gradual increase in per capita levels of assistance over the period 2007-2013. 

As  for  Iceland,  the  degree  of  its  alignment  with  EU  legislation  through  the  European 
Economic  Area  Agreement  and  its  level  of  economic  and  social  development  make  the 
country  an  exception  among  candidate  countries.  For  this  reason  it  was  agreed  that  the 
country  will  receive  IPA  assistance  exclusively  under  component  I,  managed  by  the 
Commission. The funding covers three years and began in 2011.  

2. 

ALLOCATIONS BETWEEN COMPONENTS  

IPA  is  delivered  through  the  following  five  components:  I  –  Transition  Assistance  and 
Institution  Building;  II  –  Cross-Border  Cooperation;  III  –  Regional  Development;  IV  – 
Human Resources Development; and V – Rural Development.  

Component  I,  Transition  Assistance  and  Institution  Building,  covers  all  institution-building 
actions  and  the  investments  related  to  the  acquis;  it  helps  beneficiary  countries  build  up 

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A  precursor  of  IPA  in  the  region  –  Community  Assistance  for  Reconstruction,  Development  and 
Stabilisation – which ran from 2000–2006. 
This designation is without prejudice to positions on status, and is in line with UNSCR 1244/1999 and 
the ICJ Opinion on the Kosovo declaration of independence. 

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administrative  and  judicial  capacity  and  addresses,  according  to  priority,  cooperation 
measures not expressly covered by other components.  

Component II, Cross-Border Cooperation, supports cross-border activities among beneficiary 
countries  and  between  beneficiary  countries  and  Member  States;  it  also  covers  the 
participation  of  IPA  beneficiaries  in  European  Regional  Development  Fund  (ERDF)  trans-
national  co–operation  programmes  under  the  Territorial  Cooperation  objective  of  the 
Structural  Funds  and  in  European  Neighbourhood  and  Partnership  Instrument  (ENPI)  sea-
basin programmes, as appropriate.  

Components  III  to  V  are  accessible  only  to  candidate  countries  and  aim  to  prepare  these 
countries for the programming, implementation and management of Structural, Cohesion and 
Rural Developments Funds, upon accession, by approximating, to the greatest extent possible 
under  External  Aid  rules,  the  implementation  methods  of  these  funds.  Specifically, 
component III, Regional Development, emulates to the greatest extent possible the European 
Regional  Development  Fund  and  the  Cohesion  Fund.  Component  IV,  Human  Resources 
Development,  prepares  candidate  countries  to  implement  the  European  Social  Fund  in  the 
framework of the European Employment Strategy. Component V, Rural Development, helps 
the candidate countries prepare for post-accession EU-funded rural development programmes 
by implementing pre-accession assistance through systems which are as similar as possible to 
those required after accession. 

In  determining  the  allocations  between  components,  due  account  has  been  taken  of  the 
readiness  of  the  decentralised  management  systems  necessary  for  the  implementation  of 
components III, IV and V in the current candidate countries as well as the need for component 
II funding as it relates to cross-border cooperation with Member States to match that of the 
equivalent ERDF funding from budget heading 1b. 

3. 

OTHER ALLOCATIONS  

Support expenditure 

This envelope covers the administrative costs directly linked to the implementation of IPA.  

Multi-beneficiary programme allocations 

The  multi-beneficiary  programmes  under  component  I  are  designed  to  complement  the 
national  programmes  and  to  strengthen  multilateral  relations  in  the  Western  Balkans  and 
Turkey.  The  strategy  focuses  on  areas  identified  as  crucial  for  European  integration  and 
stability in the region and issues on which the countries need to cooperate. Programmes with a 
regional  impact,  and  /  or  those  which  can  benefit  from  economies  of  scale  or  scope  if 
implemented  horizontally  across  a  number  of  beneficiary  countries,  are  funded  under  this 
envelope.  

inter  alia, 

Multi-beneficiary  programmes  support, 
the  Regional  School  for  Public 
Administration,  the  Central  European  Free  Trade  Agreement  (CEFTA),  the  Regional 
Cooperation Council (RCC), the fight against organised crime, ERASMUS scholarships and 
higher  education.  They  also  provide  a  basis  for  the  Civil  Society  Facility  which  combines 
support  from  both  the  national  and  multi-beneficiary  IPA  programmes.  Institution-building 
for  the  Western  Balkans,  Turkey  and  Iceland  is  supported  via  the  TAIEX  instrument,  and 
allocations are made for audits and evaluation of regional and national programmes, as well as 

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for  information  and  communication  activities.  Investment  needs  for  small  and  medium  size 
enterprises, energy efficiency and infrastructure development, delivered in close collaboration 
with the European Investment Bank and other International Financial Institutions (IFIs), will 
continue to be supported with a substantial part of the regional and horizontal allocation. This 
support will be  coordinated under the Western Balkan Investment Framework, set up at the 
end of 2009 to enhance coordination and cooperation among donors and IFIs actively engaged 
in  the  Western  Balkans.  From  2010,  part  of  component  II,  covering  the  participation  of 
countries  in  ERDF  "Mediterranean"  and  "South-East  Europe"  trans-national  cooperation 
programmes, is also implemented on a multi-beneficiary basis for ease of implementation. 

Presentation of the figures 

The  following  table  provides  the  above  figures  in  current  prices  and  in  Euro.  It  shows  the 
allocations by country and by component, as well as for the multi-beneficiary programme and 
support  expenditure  for  the  year  2013  in  accordance  to  the  draft  2013  budget.  The  final 
commitment figures for previous years as well as updated figures for 2012, are included for 
ease of reference. 

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Revised Multi-Annual Indicative Financial Framework: Breakdown of the Instrument for Pre-Accession Assistance envelope for 2013 into allocations by country and component 

Country/Component

2007 

2008 

2009 

2010 

2011 

2012 

2013 

Candidate countries 

CROATIA 
Transition Assistance and 
Institution Building  
Cross-border Co-operation 

49,611,775 

45,374,274

45,601,430

39,483,458 

39,959,128

39,969,161

17,437,970

9,688,225 

14,725,726

15,898,570

15,601,136 

15,869,158

16,442,542

9,749,192

Regional Development 

45,050,000 

47,600,000

49,700,000

56,800,000 

58,200,000

57,453,890

30,088,235

Human Resources 
Development 
Rural Development 

11,377,000 

12,700,000

14,200,000

15,700,000 

16,000,000

15,899,000

8,546,000

25,500,000 

25,600,000

25,800,000

26,000,000 

26,500,000

25,820,793

27,700,000

TOTAL 

141,227,000 

146,000,000

151,200,000

153,584,594 

156,528,286

155,585,386

93,521,3975

FORMER YUGOSLAV REPUBLIC OF MACEDONIA 
Transition Assistance and 
Institution Building  
Cross-border Co-operation 

41,641,613 

41,122,001

4,158,387 

4,077,999

39,310,500 

36,917,068 

29,403,410

28,659,161

27,058,357

4,371,501

4,467,526 

4,524,876

3,583,373

5,093,041

Regional Development 

7,400,000 

12,300,000

20,800,000

29,400,000 

39,300,000

40,949,983

50,276,471

Human Resources 
Development 
Rural Development 

3,200,000 

6,000,000

7,100,000

8,400,000 

8,800,000

10,288,000

10,636,000

2,100,000 

6,700,000

10,200,000

12,500,000 

16,000,000

17,991,604

20,157,737

TOTAL 

58,500,000 

70,200,000

81,782,001 

91,684,594 

98,028,286

101,472,121

113,221,606

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50% of the initial 2013 allocation for components I to IV and 100% of the initial 2013 allocation for component V  

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Country/Component
ICELAND 
Transition Assistance and 
Institution Building 
TOTAL 

MONTENEGRO 
Transition Assistance and 
Institution Building  

Cross-border Co-operation 

Regional Development 

Human Resources 
Development 

Rural Development 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

12,000,000

11,997,400

5,810,415

12,000,000

11,997,400

5,810,415

27,490,504 

28,112,552

29,832,1796 

29,838,823 

29,843,599

16,346,471

5,073,420

3,909,496 

4,487,448

4,667,821

3,682,690 

4,310,344

4,588,551

4,668,687

7,982,738

14,752,941

2,775,000

2,808,000

3,258,3087

7,285,467

TOTAL 

31,400,000 

32,600,000

34,500,000 

33,521,513 

34,153,943

34,951,068

34,588,515

181,496,352 

179,441,314

182,551,643

186,206,679 

190,556,810

190,600,995

196,683,533

8,203,648 

11,458,686

12,248,357

11,751,753 

11,322,790

11,497,244

11,630,694

SERBIA 
Transition Assistance and 
Institution Building  

Cross-border Co-operation 

Regional Development 

Human Resources 
Development 

Rural Development 

TOTAL 

189,700,000 

190,900,000

194,800,000

197,958,432 

201,879,600

202,098,239

208,314,227

Includes €1.2 million additional funds recovered from previous programmes. 
The procedure of transferring these funds from the Rural Development component to the Transition Assistance and Institution Building component has been initiated. 

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Country/Component
TURKEY 
Transition Assistance and 
Institution Building  

Cross-border Co-operation 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

256,702,720 

256,125,297

239,550,810

217,809,826 

231,268,023

227,499,161

238,500,014

2,097,280 

2,874,709

3,049,190

3,090,174 

5,131,977

2,174,617

2,218,109

Regional Development 

167,500,000 

173,800,000

182,700,000

238,100,000 

293,400,000

356,066,389

366,882,353

Human Resources 
Development 

Rural Development 

50,200,000 

52,900,000

55,600,000

63,400,000 

77,600,000

83,188,000

91,167,077

20,700,000 

53,000,000

85,500,000

131,300,000 

172,500,000

187,387,295

204,184,796

TOTAL 

497,200,000 

538,700,006

566,400,000

653,700,000 

779,900,000

856,315,462

902,952,349

Potential candidates 

ALBANIA 
Transition Assistance and 
Institution Building  

Cross-border Co-operation 

54,318,790 

65,237,7568

71,360,000 

84,200,0009 

84,301,650

85,140,996

84,682,966

6,681,210 

8,582,244

9,822,921

9,973,173 

10,126,636

9,433,169

10,666,232

TOTAL 

61,000,000 

73,820,000 

81,182,921 

94,173,173 

94,428,286

94,574,165

95,349,198

BOSNIA AND HERZEGOVINA 
Transition Assistance and 
Institution Building  

58,136,394 

69,854,783

83,900,000 

100,688,099 

102,681,861

102,670,996

103,493,402

Cross-border Co-operation 

3,963,606 

4,945,217

5,207,746

4,696,495 

4,746,425

5,197,353

5,342,041

TOTAL 

62,100,000 

74,800,000

89,107,746 

105,384,594 

107,428,286

107,868,349

108,835,443

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Includes €3.12 million additional funds recovered from previous programmes. 
Includes €1.5 million additional funds recovered from previous programmes. 

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Country/Component
KOSOVO 
Transition Assistance and 
Institution Building  

Cross-border Co-operation 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

68,300,000 

184,700,000

106,100,000

66,100,000 

66,900,000

67,000,144

68,477,942

0 

0

0

1,200,000 

1,800,000

1,800,000

2,987,731

TOTAL 

68,300,000 

184,700,000

106,100,000

67,300,000 

68,700,000

68,800,144

71,465,673

TOTAL COUNTRY PROGRAMMES 

1,109,427,000  1,311,720,006 1,305,072,668 1,397,306,900  1,553,046,687 1,633,662,334 1,634,058,823

MULTI-BENEFICIARY PROGRAMMES  
Transition Assistance and 
Institution Building  
Cross-border Co-operation 

0 

129,571,00010  137,736,64411 188,867,53612

141,706,55113  187,860,60514 207,031,12215

171,226,015 

0

0

4,921,679 

5,293,313

5,672,378

6,059,026

SUPPORT EXPENDITURE 

44,793,000 

51,950,000

47,648,000

47,393,000 

52,183,900 

52,747,050

53,302,924

GRAND TOTAL 

1,263,200,000  1,501,406,650 1,541,588,204 1,591,328,130  1,798,384,505 1,899,112,884 1,864,646,788

Figures are in Euro at current prices  

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Includes €20.6 million additional funds recovered from previous programmes. 
Includes €2.0 million additional funds recovered from previous programmes. 
Includes €22.8 million additional funds recovered from previous programmes. 
This includes a reduction of €29 million for the food security f acility which will be paid back in 2011 (€14 million), 2012 (€ 6 million) and 2013 (€9 million). The funds paid 
back in these years will be used for the allocation to Iceland. The figure also includes €2.7 million additional funds recovere d from previous programmes. 
Includes €1.6 million additional funds recovered from previous programmes. 
Includes €32.1 million additional funds recovered from previous programmes. 

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