JOINT REPORT TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the implementation of the Action Plan on Military Mobility
Date: 2019-06-03
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: EU action, European Defence Agency, European defence policy, VAT, dual-use technology, military cooperation, simplification of formalities, trans-European network, transport infrastructure, transport of dangerous goods

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 3.6.2019  JOIN(2019) 11 final  JOINT REPORT TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the implementation of the Action Plan on Military Mobility  
 
 
I. 

INTRODUCTION  

1.  Improving  military  mobility  is  a  key  EU  initiative  launched  on  10  November  20171.  It  will 
contribute  to  the  establishment  of  a  European  Defence  Union,  which  was  called  for  in 
President Juncker’s 2017 State of the Union Address2. It contributes to the fulfilment of the 
level of ambition in security and defence as agreed by the Council on 14 November 20163, 
following  the  presentation  of  the  Global  Strategy  for  the  EU  Foreign  and  Security  Policy4. 
Military  mobility  is  being  implemented  in  coherence  with  the  Permanent  Structured 
Cooperation,  including  at  the  project  level,  as  well  as  the  implementation  of  the  concrete 
measures  undertaken  by  the  EU  Member  States  on  25  June  20185.  Furthermore,  it  is  a  key 
priority for the EU-NATO cooperation in the framework of the implementation of the Joint 
Declarations6  and  the  established  Structured  Dialogue  on  military  mobility  at  staff-to-staff 
level. 

2. 

 This  initiative  exploits  civilian-military  synergies  to  improve  the  mobility  of  military 
personnel, materiel and equipment for routine activities and during crisis and conflict, within 
and beyond the EU, by all transport modes and in all strategic directions. It will enable the EU 
Member States to act faster and more effectively in the context of the Common Security and 
Defence Policy, national and multinational activities.  

3.  The  High  Representative  of  the  Union  for  Foreign  Affairs  and  Security  Policy  and  the 
Commission  presented  the  Action  Plan  on  Military  Mobility  (Action  Plan)  on  28  March 
20187.  In  June  2018,  the  Council  welcomed  the  Action  Plan  and  called  for  its  swift 
implementation in  close  cooperation  between  all  relevant  stakeholders8.  Furthermore,  on  19 
November 2018 the Council welcomed the progress and provided further guidance regarding 
the next steps9. In addition to, and in complementarity with, this Progress Report on 13 May 
2019  the  European  Defence  Agency  Steering  Board  welcomed  the  Agency's  first  annual 
report on military mobility. 

4.  The Action Plan outlines concrete steps and timelines, focusing on the Union's added value in 
helping  and  facilitating  the  EU  Member  States'  efforts  to  improve  military  mobility.  In 
particular, the Union can contribute by identifying civilian-military synergies and leveraging 
existing policies and instruments in three main areas – transport infrastructure, regulatory and 
procedural issues, and other cross-cutting topics. Through close and continuous cooperation 

1 Joint Communication to the European Parliament and the Council on Improving Military Mobility in the 
European Union {JOIN(2017) 41 final}. 
2 President Juncker, State of the Union Address 2017, 13 September 2017, http://europa.eu/rapid/press-
release_SPEECH-17-3165_en.htm 
3 Council conclusions on implementing the EU Global Strategy in the area of Security and Defence, 14 
November 2016, https://www.consilium.europa.eu/media/22459/eugs-conclusions-st14149en16.pdf 
4 Shared Vision, Common Action: A Stronger Europe, A Global Strategy for the European Union’s Foreign And 
Security Policy, June 2016, http://eeas.europa.eu/archives/docs/top_stories/pdf/eugs_review_web.pdf 
5 Council conclusions on Security and Defence in the context of the EU Global Strategy, 25 June 2018, 
paragraph 18, http://data.consilium.europa.eu/doc/document/ST-10246-2018-INIT/en/pdf 
6 Joint Declaration on EU-NATO Cooperation by the President of the European Council, the President of the 
European Commission, and the Secretary General of the North Atlantic Treaty Organization, 
https://www.consilium.europa.eu/media/36096/nato_eu_final_eng.pdf 
7 Joint Communication to the European Parliament and the Council on the Action Plan on Military Mobility 
{JOIN(2018)05 final}, p. 10. 
8 European Council meeting (28 June 2018) – Conclusions, 28 June 2018, 
https://www.consilium.europa.eu/media/35936/28-euco-final-conclusions-en.pdf 
9 Council conclusions on Security and Defence in the context of the EU Global Strategy (13978/18), 19 
November 2018, http://data.consilium.europa.eu/doc/document/ST-13978-2018-INIT/en/pdf 

1 

 
                                                           
between  the  Commission  services,  the  European  External  Action  Service  including  the  EU 
Military Staff , the European Defence Agency and full involvement of the EU Member States 
in a whole-of-government approach while respecting their national sovereignty and decision-
making, major progress was made in the implementation of the Action Plan.  

5.  The  Action  Plan  requests  the  first  Progress  Report  by  summer  201910.  The  present  Report 

describes the substantial and tangible progress achieved so far and the way forward.  

II.  MILITARY  REQUIREMENTS  FOR  MILITARY  MOBILITY  WITHIN 

AND BEYOND THE EU 

A.  Definition of the Military Requirements 

6.  The starting point of the implementation of the Action Plan was the definition of the Military 
Requirements for Military Mobility within and beyond the EU (Military Requirements). The 
Military Requirements were developed by the EU Military Staff, in close cooperation with the 
EU  Member  States,  the  Commission  services  and  relevant  Union  agencies  and  bodies, 
including the European Defence Agency, and in consultation with NATO as appropriate, and 
other  relevant  stakeholders.  Additionally,  following  a  whole-of-government  approach, 
relevant competent national authorities beyond the Ministries of Defence were invited by the 
Council to participate in this process. 

7.  The  Military  Requirements  were  agreed  by  the  EU  Military  Committee  and  subsequently 
approved by the Council: the overarching high-level part on 25 June 2018 and the annexes on 
19  November  2018.  The  Military  Requirements  were  then  consolidated  on  28  November 
201811.  

8.  The  Military  Requirements  aim  to  improve  the  movement  of  military  forces  (personnel, 
materiel  and  assets)  within  and  beyond  the  EU.  It  is  a  strategic  and  operational  enabler  for 
military  action,  supporting  the  EU  strategic  autonomy  and  facilitating  the  deployment,  re-
deployment and sustainment of the EU Member States forces to meet the relevant parts of the 
EU Level of Ambition as well as the national requirements of the EU Member States. 

9.  The  Military  Requirements  provide  the  necessary  principles  and  key  aspects  of  military 
movement, and comprehensively consider all factors conditioning military movement. They 
encompass  several  main  areas:  planning  and  conduct  support,  transport  infrastructure,  legal 
and  regulatory  aspects,  access  to  transport  resources  and  support,  coordination  and 
information exchange, security, training, and environmental considerations. An essential part 
of the document is the definition of the geographic scope of all transport infrastructure across 
the Union that the EU Member States identified as needed for military movement. In addition, 
NATO's generic infrastructure parameters, as transmitted by the Secretary General of NATO 
in May 2018, are reflected in the Military Requirements, which contributes towards ensuring 
coherence between the respective sets of military requirements underpinning the work of both 
organisations in this domain. 

10 Joint Communication to the European Parliament and the Council on the Action Plan on Military Mobility 
{JOIN(2018)05 final}, p. 10. 
11 Military Requirements for Military Mobility within and beyond the EU (ST 14770/18), 28 November 2018. 

2 

 
 
 
                                                           
B.  Partial Update of the Military Requirements 

10.  The approval of the Military Requirements led to the completion of the Gap Analysis between 
the military and the civilian transport infrastructure requirements12 (see points 17-21). Further 
to  the  presentation  of  the  Gap  Analysis  to  the  Political  and  Security  Committee,  on  8  May 
2019 the Political and Security Committee invited the European External Action Service/ EU 
Military  Staff  to  provide  an  update  of  the  transport  infrastructure  parameters  and  the 
geographical  data  of  the  Military  Requirements,  taking  into  account  the  Gap  Analysis.  The 
EU Military Staff has prepared the draft updates in close cooperation with the EU Member 
States,  Commission  services  and  the  European  Defence  Agency,  and  in  coordination  with 
NATO  as  appropriate  at  staff-to-staff  level,  in  view  of  the  approval  by  the  Council  of  the 
updated  Military  Requirements  by  summer  2019.  Following  engagement  with  NATO  staff 
within  the  Structured  Dialogue,  NATO  transmitted  its  updated  generic  infrastructure 
parameters to the EU on 22 March 2019. 

III.  TRANSPORT INFRASTRUCTURE 

11.  Infrastructure barriers are being addressed in order to achieve better mobility of forces within 
and beyond the EU. In this context, increasing synergies between defence needs and the trans-
European transport network is a major pillar of the Action Plan. 

12.  Substantial progress has been achieved in this field since the adoption of the Action Plan, and 

the actions foreseen until now have all been completed. 

A.  Dual-use transport infrastructure funding 

13.  On 2 May 2018, the Commission proposed a 6.5 billion EUR military mobility envelope as 
part of the Connecting Europe Facility 2021-2027 to fund civilian-military dual-use projects. 
Specific  provisions  related  to  dual  use  transport  infrastructure  funding  were  inserted  in  the 
proposed Regulation13. On 7 March 2019, the co-legislators reached a common understanding 
on  the  proposed  Connecting  Europe  Facility  2021-2027  Regulation  text  with  the  necessary 
provisions for dual-use project funding in place14, and since then the proposed Regulation text 
was endorsed by the Council and the European Parliament. The financial allocations for the 
Connecting Europe Facility 2021-2027 will be finalised as part of the Multiannual Financial 
Framework 2021-2027 negotiations. 

14.  As proposed, the Connecting Europe Facility will also contribute to the financing of transport 
infrastructure projects so as to better meet military requirements. This EU contribution should 
therefore  allow  Member  States  to  develop  infrastructure  sections  which  will  serve  both 
defence and civilian transport objectives. 

12 Joint Staff Working Document Military requirements and trans-European transport network: gap analysis, 
{SWD(2019) 175 final} 
13 Proposal for a Regulation of the European Parliament and of the Council establishing the Connecting Europe 
Facility and repealing Regulations (EU) No 1316/2013 and (EU) No 283/2014, 6 June 2018. 
14 Proposal for a Regulation of the European Parliament and of the Council establishing the Connecting Europe 
Facility and repealing Regulations (EU) No 1316/2013 and (EU) No 283/2014 - Progress report, Council of the 
European Union, 2018/0228(COD), 13 March 2019, https://www.consilium.europa.eu/media/38507/st07207-
re01-en19.pdf 

3 

 
 
                                                           
Military requirements 

15.  The approval of the Military Requirements by the Council provided the starting point for the 

work on transport infrastructure aspects of military mobility (see points 6 to 9 above).  

Gap Analysis 

16.  The next action towards dual-use project funding was the identification of the gaps between 
the military and the civilian requirements. The Gap Analysis is a comparison of the military 
infrastructure  standards  and  the  geographic  scope  of  the  military  network  of  the  Military 
Requirements  on  the  one  hand,  and  the  current  technical  requirements  and  the  geographic 
scope  of  the  trans-European  transport  network  infrastructure  on  the  other  hand,  including 
identified practical mitigating measures in areas where gaps exist. 

17. The Gap Analysis was transmitted to the Council on 3 May 2019 in the form of a Joint Staff 

Working Document15. 

18. Overall,  the  assessment  is  positive:  with  regards  to  the  infrastructure  requirements,  a  large 
part  of  the  military  standards  are  in  principle  considered  as  compatible  with  the  trans-
European  transport  network  requirements;  and  concerning  the  geographic  data  (the  military 
network), 94% of the infrastructure identified as relevant for military purposes overlaps with 
the  geographic  scope  of  the  trans-European  transport  network.  Furthermore,  practical 
mitigating measures were identified in those instances where gaps between the military and 
the trans-European transport network requirements are substantial.  

19.  The results of the Gap Analysis have two important implications. Firstly, the identification of 
the  overlap  between  the  military  mobility  network  and  the  geographic  scope  of  the  trans-
European  transport  network  will  define  the  geographic  coverage  for  Connecting  Europe 
Facility dual-use projects from the military mobility envelope because only projects that are 
part  of  both  the  military  mobility  geographic  network  and  the  trans-European  transport 
network will be eligible. The 94% overlap between the transport infrastructure identified by 
the  EU  Member  States  as  relevant  for  military  mobility  and  the  trans-European  transport 
network proves that synergies between civilian and military transportation exist. 

20. Secondly, as mentioned previously, taking into account the results of the Gap Analysis, the 
Political and Security Committee invited the European External Action Service / EU Military 
Staff to update the Military Requirements with a view to their approval by the Council by the 
summer of 2019. The update is expected to further narrow down the gap between the military 
and the civilian transport infrastructure requirements as well as the eventual gap between the 
military  and  the  dual-use  requirements  (see  below).  Once  the  Military  Requirements  are 
updated, the Gap Analysis will also be revised. 

Dual-use requirements 

21.  The  proposed  Connecting  Europe  Facility  2021-2027  Regulation  stipulates  that  the 
Commission  will  adopt  an  implementing  act  specifying,  where  necessary,  notably  the 
infrastructure requirements applicable to certain categories of dual-use infrastructure actions. 
The Commission will involve the European External Action Service, the EU Member States 
and  the  relevant stakeholders in  the  process. The consultation of the  stakeholders  started  in 
mid-April 2019. 

15 Cf. footnote 11 above. 

4 

 
                                                           
22.  The  Gap  Analysis  has  laid  the  groundwork  for  the  definition  of  the  dual-use  requirements, 
and they are expected to be prepared by the end of 2019 to be ready for adoption by the time 
the Connecting Europe Facility 2021-2027 Regulation is adopted. 

Dual-use project pipeline 

23.  Once  the  EU  Member  States  identify  the  necessary  upgrades  of  existing  infrastructure  and 
possible  new  infrastructure  projects,  and  after  the  dual-use  requirements  are  defined,  the 
Commission and the European External Action Service will work with the EU Member States 
and  all  relevant  stakeholders  on  a  dual-use  indicative  pipeline  of  projects.  This  will  be 
implemented by 2020. 

B.  Revision of the trans-European transport network Regulation 

24.  The  Commission  has  anticipated  the  review  of  the  trans-European  Transport  network 
Regulation16,  which  should  be  finished  in  the  first  semester  of  2020.  The  Commission  will 
include certain military and/or dual-use requirements in the review process. 

C.  TENtec Information System 

25.  TENtec  is  the  Commission’s  Information  System  to  coordinate  and  support  the  trans-

European transport network policy. 

26.  It has already proved to be very useful for military mobility purposes as it allowed to convert 
the geographic data identified in the Military Requirements into a visual format and to create 
an interactive TENtec Military Mobility Maps Viewer17. The viewer provides a visual way to 
analyse  the  Military  Mobility  network,  to  perform  various  calculations  with  regards  to  the 
length  of  the  Military  Mobility  network  and  its  overlap  with  the  trans-European  transport 
network, as well as to facilitate cross-border connections. 

27.  Furthermore, TENtec is being improved on a continuous basis: for example, a TENtec update 
of  the  technical  parameters,  which  will  include  basic  military  mobility  considerations,  is 
expected by summer 2019. 

Finally,  the  Action  Plan  refers  to  a  possible  interlinking  of  military  and  civilian  databases. 
The consultations with the relevant parties with regards to the feasibility of such action will 
start in 2020. 

IV. 

TRANSPORT OF DANGEROUS GOODS 

28.  The transport of dangerous goods in the military domain is another area where EU action can 
provide added value. A survey addressing existing rules applicable to transport of dangerous 
goods  in  the  military  sector  has  been  concluded  by  the  European  Defence  Agency  in  close 
cooperation  with  the  Commission  services.  The  findings  were  presented  to  the  European 
Defence  Agency  participating  EU  Member  States  in  April  2019  and  will  be  considered 
further. 

16 Regulation (EU) No 1315/2013 of the European Parliament and of the Council of 11 December 2013 on 
Union guidelines for the development of the trans-European transport network and repealing Decision No 
661/2010/EU (OJ L 348, 20.12.2013, p.1). 
17 Access to the interactive viewer is provided on the need-to-know basis upon contacting move-
tentec@ec.europa.eu 

5 

 
 
                                                           
29.  The survey maps national legislative frameworks with a focus on obstacles and restrictions to 
movement  of  dangerous  goods.  The  national  procedures  concerning  the  transport  of 
dangerous goods in the military sector were inventoried, and a questionnaire was established 
and sent out to the EU Member States on 8 October 2018. 

30.  In  addition,  within  the  framework  of  the  EU-NATO  Structured  Dialogue  on  Military 
Mobility, the EU and NATO analysed possible synergies in their respective actions related to 
transport  of  dangerous  goods.  In  this  respect,  the  release  to  the  EU  of  the  relevant  NATO 
Standardisation Agreement as well as other reference documents will facilitate the alignment 
of  their  efforts  both  in  transport  of  dangerous  goods  and  other  fields  linked  to  military 
mobility. 

31.  The Commission services are analysing various options, which could smoothen the transport 
of  dangerous  goods and thus  improve  military  mobility.  The  results of this  analysis  will  be 
considered in the further development of EU’s relevant programmes and initiatives, including 
in  the  context  of  the  European  Defence  Agency.  In  addition,  the  outcome  of  the  European 
Defence  Agency  survey,  expected  by  summer  2019,  will  help  to  assess  the  feasibility  and 
need for further actions at the EU level in line with the Action Plan. 

32.  The  actions  related  to  transport  of  dangerous  goods  are  developed  in  close  cooperation 
between the European Defence Agency, the Commission services and the European External 
Action  Service/  EU  Military  Staff.  The  Committee  on  Transport  of  Dangerous  Goods 
consisting of civilian experts18 is regularly informed. 

V. 

CUSTOMS AND VALUE-ADDED TAX 

A.  Customs 

33.  The Action Plan also identified specific actions in order to streamline and simplify customs 
formalities  for  cross-border  military  movements  while  ensuring  synergies  with  NATO.  The 
current  customs  legislation  in  the  EU,  in  force  since  May  2016,  foresees  the  possibility  of 
using  Form  302,  which  is  a  specific  customs  form  established  by  NATO,  as  a  customs 
declaration for transit procedures only. This legislation could be amended in order to extend 
the Form 302 to certain customs procedures other than transit, such as import and export (the 
latter being done on a temporary basis).  

34.  In  parallel,  the  creation  of  an  EU  Form  302  would  streamline  cross-border  military 
movements  outside  the  NATO  umbrella.  This  form  could  also  be  used  by  non-NATO  EU 
Member  States.  By  aligning  the  NATO  Form  302  and  the  EU  Form  302  to  the  maximum 
extent possible – with the aim of using identical forms, the related customs processes would 
be  streamlined  throughout  the  EU,  which  would  also  ensure  uniform  treatment  of  military 
movements by customs in all EU Member States. 

35.  EU  Member  States  have  shown  broad  support  at  the  technical  level  for  the  draft  legal 
amendments  necessary  for  the  simplification  of  the  customs  formalities  related  to  cross-
border  military  movements,  as  well  as  for  the  introduction  of  an  EU  Form  302.  The 
development  of  a  template  for  an  EU  Form  302  was  facilitated  by  the  European  Defence 
Agency in the framework of its ad-hoc programme on customs, and was shared with NATO 
by the European Defence Agency. The full alignment of Form 302 between NATO and the 

18 Directive 2008/68/EC of the European Parliament and of the Council of 24 September 2008 on the inland 
transport of dangerous goods (OJ L 260, 30.9.2008, p. 13). 

6 

 
 
                                                           
EU depends on NATO’s assessment of the revised Form 302. The legal basis for the use of 
the EU Form 302 will be created by including the template for this form into the EU customs 
legislation. 

36.  The  legal  changes  require  a  series  of  amendments  to  two  Commission  Regulations:  the 
Delegated  Act19  and  the  Implementing  Act20  of  the  Union  Customs  Code21.  The  draft 
amendments to the Delegated Act22 should be adopted by the Commission in autumn 2019, 
and the draft amendment to the Implementing Act23 should be adopted by the Commission in 
the beginning of 2020 at the earliest. 

B.  Value-added tax 

37.  Another important deliverable achieved by the Commission is the adoption of its proposal for 
amendments  of  the  value  added  tax  and  excise  duty  treatment  of  defence  effort  within  the 
Union framework24 on 24 April 2019. Given that supplies to armed forces participating in a 
NATO defence effort while outside their country can already benefit from such exemptions, 
the proposal aims to ensure equal treatment of defence efforts under the NATO and the EU 
framework  by  exempting  supplies  to  armed  forces  from  value  added  tax  and  excise  duties 
when  these forces are  deployed  outside their own  Member  State  and take  part in  a  defence 
effort under the Common Security and Defence Policy. By aligning the indirect tax treatment 
of both defence efforts, the initiative acknowledges the growing importance of the Common 
Security and Defence Policy and military mobility. 

38.  The proposal was presented to the Council Working Party on Tax Questions on 16 May 2019. 
Discussions  will  continue under the  Finnish  Presidency  of  the  EU.  The  Commission  would 
welcome an adoption of the proposal by the Council as soon as possible. 

VI. 

CROSS-BORDER MOVEMENT PERMISSION 

39.  Activities in this area were further developed within the European Defence Agency, notably 
in  the  frame  of  the  Programme  on  “Optimising  Cross-Border  Movement  Permission 
procedures in Europe”, the EU Multimodal Transport Hub and the Technical Arrangement on 
Diplomatic Clearance for air transport. 23 EU Member States joined the European Defence 
Agency  Programme  Arrangement  on  “Optimising  Cross-Border  Movement  Permission 
procedures in Europe”, signed in the margins of the 14 May 2019 European Defence Agency 
Steering  Board.  By  harmonising  and  simplifying  cross-border  procedures  with  a  focus  on 
surface  and  air  movements  in  combination  with  diplomatic  clearance  procedures,  this 

19 Commission Delegated Regulation (EU) 2015/2446 of 28 July 2015 supplementing Regulation (EU) No 
952/2013 of the European Parliament and of the Council as regards detailed rules concerning certain provisions 
of the Union Customs Code (OJ L 343 29.12.2015, p. 1). 
20 Commission Implementing Regulation (EU) 2015/2447 of 24 November 2015 laying down detailed rules for 
implementing certain provisions of Regulation (EU) No 952/2013 of the European Parliament and of the 
Council laying down the Union Customs Code (OJ L 343 29.12.2015, p. 558). 
21 Regulation (EU) No 952/2013 of the European Parliament and of the Council of 9 October 2013 laying down 
the Union Customs Code (recast) (OJ L 269 10.10.2013, p. 1). 
22 Cf. footnote 18 above. 
23 Cf. footnote 19 above. 
24 COM(2019)192/F1 – Proposal for a Council Directive amending Directive 2006/112/EC on the common 
system of value added tax and Directive 2008/118/EC concerning the general arrangements for excise duty as 
regards defence effort within the Union framework. 

7 

 
 
                                                           
programme will enhance and ease the military movement of EU Member States’ capabilities 
for operations, exercises, and daily activities. 

40.  Complementing  these  activities,  the  EU  Multimodal  Transport  Hub  project,  established  in 
2013,  contributed  to  set  up  a  geographical  network  facilitating  the  movement  of  troops.  14 
EU Member States are now participating in the project. Currently, a Technical Arrangement 
on  Border  Crossing  and  Transport  Surface  movement  is  pending  signature  within  the  EU 
Multimodal  Transport  Hub  project.  As  for  the  Technical  Arrangement  on  Diplomatic 
Clearance, it envisages pre-approval for diplomatic clearance for air transport. Following its 
inception  in  2012,  20  EU  Member  States  have  now  signed  the  arrangement.  The  results  of 
both the project on EU Multimodal Transport Hub and on Diplomatic clearances will further 
feed the activities that are being implemented in the context of the Cross-Border Movement 
Permission programme. 

VII.  OTHER ISSUES 

41.  The Action Plan further referred to certain legal aspects such as the possible impact of the EU 
Status  of  Forces  Agreement  on  military  mobility.  The  EU  Status  of  Forces  Agreement  was 
signed  in  2003  and  entered  into  force  on  1  April  201925,  following  the  completion  of  its 
ratification process by Ireland. The Agreement covers the status of military and civilian staff 
seconded to the institutions of the EU as well as of the headquarters and forces which may be 
made available to the EU in the context of the preparation and execution of the tasks referred 
to in Article 42 of the TEU, including exercises.  

42.  The European Defence Agency carried out a survey to map national legislative frameworks 
with  a  focus  on  caveats  and  restrictions  to  movement  and  national  interpretation  of 
international instruments and procedures. The results of this survey will inform further work 
of the Commission services and the European Defence Agency. 

43.  Furthermore,  the  Action  Plan  acknowledged  the  importance  of  reflecting  the  relevance  of 
military mobility in the context of other cross-cutting issues such as countering hybrid threats. 
During  the  implementation  of  the  22  Actions  of  Joint  Framework  on  Countering  Hybrid 
Threats26,  two  actions  have  been  considered  relevant  for  military  mobility:  Action  3  – 
Strategic Communications, and Action 7 – Protection of transport critical infrastructure. The 
implementation of both actions is ongoing and a direct reference to military mobility could be 
established in a possible future revision of the Joint Framework with the purpose to elaborate 
on potential threats in these two domains. 

VIII.  CONCLUSIONS AND WAY FORWARD 

44.  Since the launch of the Action Plan, substantial and tangible progress has been achieved in all 
areas,  and  key  documents,  namely  the  Military  Requirements,  the  Gap  Analysis  and  the 
proposal for value added tax amendments, have been delivered. In addition, the signature by 

25 Agreement between the Member States of the European Union concerning the status of military and civilian 
staff seconded to the institutions of the European Union, of the headquarters and forces which may be made 
available to the European Union in the context of the preparation and execution of the tasks referred to in Article 
17(2) of the Treaty on European Union, including exercises, and of the military and civilian staff of the Member 
States put at the disposal of the European Union to act in this context (EU SOFA) (OJ C 321, 31.12.2003 p. 6) 
26 Joint Communication to the European Parliament and the Council Joint Framework on countering hybrid 
threats – a European Union response {JOIN/2016/018 final}. 

8 

 
 
 
                                                           
23 EU Member States of the European Defence Agency Programme Arrangement on Cross-
Border  Movement  Permission  procedures  in  Europe  is  a  tangible  achievement.  Substantial 
progress has also been achieved in areas such as transport of dangerous goods and customs. 

45.  This progress would not have been possible without whole-of-government involvement of the 
EU Member States while respecting their national sovereignty and decision-making, as well 
as close and continuous cooperation between the Commission services, the European External 
Action Service including the EU Military Staff, and the European Defence Agency. The EU-
NATO  Structured  Dialogue  will  further  enhance  the  cooperation  on  military  mobility.  The 
Commission  and  the  High  Representative  welcome  this  approach  and  are  committed  to 
continue working in the same way and at the same pace. 

46.  The next Progress Report will be presented by the end of the summer of 2020. 

9