JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Action plan on military mobility 2.0
Date: 2022-11-10
Institutions: Directorate-General for Defence Industry and Space, European Commission
Subjects: EU Member State, EU action, EU-NATO cooperation, European Defence Agency, European defence policy, European security, dual-use technology, military cooperation, trans-European network, transport infrastructure

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 10.11.2022  JOIN(2022) 48 final  JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Action plan on military mobility 2.0  
 
 
1. 

INTRODUCTION 

The Strategic Compass on Security and Defence1, which the European Council endorsed in March 2022, 
emphasised  that:  “Russia’s  military  aggression  against  Ukraine  has  confirmed  the  urgent  need  to 
substantially enhance the military mobility of our armed forces within and beyond the Union.” In view 
of “new commitments with the aim to substantially enhance and invest in military mobility”, it called 
for an “ambitious, revised Action Plan by the end of 2022”. This Action Plan on Military Mobility 2.0 
responds to this call.  

Military mobility is vital for our European security and defence. The EU Member States’ forces need 
to be able to respond quickly and with sufficient scale to crises erupting at the EU’s external borders 
and beyond. Moreover, in the context of the Russian aggression against Ukraine we have learned how 
important it is to move military aid as quickly and smoothly as possible. 

Member States’ experience in the Ukraine context shows that the Union has taken steps forward on 
military  mobility.  For  example,  relevant  arrangements  developed  by  the  European  Defence  Agency 
have  helped  Member  States  to  shorten  times  for  cross-border  movement.  Given  the  exceptional 
circumstances, Member States have often been ready to make exemptions to solve issues on a case-by-
case  basis  to  overcome  their  national  restrictions.  It  is  time  to  move  from  a  case-by-case  approach 
towards structural solutions. At the same time, we have also witnessed limitations - for example the 
different rail systems between Ukraine and EU Member States as well as within the European Union 
prevented  optimal  mobility  solutions.  The  strong  dependence  on  contracted  civilian  transportation 
solutions also became apparent.   

Building on the progress made since the military mobility initiative was launched in 20172, this new 
Action Plan opens the next chapter of work on military mobility for the period 2022-2026. Enlarged 
in scope and proposing additional measures, it will contribute to a well-connected military mobility 
network,  with  shorter  reaction  times  and  capable,  secure,  sustainable  and  resilient  transport 
infrastructure and capabilities.  

The Action Plan addresses the need to further improve the capacity of transport infrastructure to handle 
the weight, size and scale of military movement with new measures to prioritise our work and include 
the  fuel  supply  chain  requirements  for  military  transports.  It  continues  the  effort  to  streamline  and 
harmonise complex, lengthy and diverging national rules and procedures, including by introducing new 
actions to support the further digitalisation of the administrative processes. It adds a new preparedness 
and  resilience  pillar  that  encompasses  the  development  of  strategic  lift  capabilities  in  line  with  the 
Coordinated Annual Report on Defence (CARD) Report of November 2020. It proposes measures to 
enhance  the  protection  of  the  transport sector  against  cyber-attacks  and  other  hybrid  threats,  and to 
promote  its  climate  resilience  and  energy  security.  The  new  partnership  pillar  outlines  proposals  to 
strengthen dialogue, cooperation and connectivity with a range of external partners.   

The building blocks that have been put in place since 2018 provide a solid foundation for this new 
Action Plan:   

  The Council has approved the Military Requirements for Military Mobility within and beyond the 

EU, including technical specifications and main military routes.3  

1  A Strategic Compass for Security and Defence - For a European Union that protects its citizens, values and 
interests and contributes to international peace and security (7348/1/22). 
2 On the basis of the Joint Communication ‘Improving Military Mobility in the European Union’ (JOIN(2017) 
41 final) and the Joint Communication ‘on the Action Plan on Military Mobility’ (JOIN(2018) 5 final.  
3 Military Requirements for Military Mobility  within and beyond the EU, update (ST 10921/19), 4 July 2019, 
approved by the Council on 15 July and consolidated with the remaining part on 19 July (ST 11373/19). 

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  There  is  a  budget  of  EUR  1.69  billion  for  dual-use  transport  infrastructure  projects  under  the 

Connecting Europe Facility (CEF) between 2021-2027.4  

  The first CEF Work Programme for 2021-2023 and the Implementing Regulation on the dual-use 
requirements for these projects were adopted in August 2021.5 This paved the way for the adoption 
of the first wave of projects worth EUR 339 million on 24 May 2022 while the second call was 
launched  earlier  in  the  same  month.  These  dates  were  accelerated  compared  to  the  originally 
envisaged  timelines  in  light  of the  war  in  Ukraine, in  order  to  accelerate  the implementation  of 
infrastructure projects that will improve military mobility.   

  The  Commission  has  put  forward  a  proposal  for  a  revised  trans-European  transport  network 
Regulation6 which reflects for the first time also military mobility in the trans-European transport 
network. Coherence between the EU military network and the TEN-T networks has been improved 
and new infrastructure standards, that will directly improve military mobility, have been proposed 
in all modes of transport.  

  Regulatory and procedural aspects have been addressed as well: the customs formalities for cross-
border  military  movements  have  been  simplified.  Transport  of  dangerous  goods  in  the  military 
domain has been harmonised.  A new directive (2019/2235) provides for an exemption of VAT and 
excise duty  for goods or services used or acquired in the context of a defence effort carried out for 
the implementation of a Union activity under the Common Security and Defence Policy . Twenty-
four EU Member States and Norway have joined the European Defence Agency Programme on 
“Optimising Cross-Border Movement Permission procedures in Europe”.  
In  the  framework  of  the  Permanent  Structured  Cooperation  (PESCO),  Member  States  have 
launched different collaborative projects. The project on Military Mobility brings together twenty-
five Member States and third countries7 to coordinate relevant national measures including those 
agreed  by  the  Member  States  in  the  so-called  ‘military  mobility  pledge’  of  25 June  20188.  The 
project on Logistical Hubs involves 17 Member States working together to connect their logistical 
depots and capabilities to reduce reaction time and optimise the use of capacities. 

 

2.  STRATEGIC APPROACH 

Following the direction set by the Strategic Compass and taking into account both the guiding principles 
spelled  out in the 2018  Action  Plan9  and the  changed strategic  context,  this  Action  Plan  provides  a 
comprehensive framework to enhance military mobility. It proposes further actions to enable the swift, 
efficient and unimpeded movement of potentially large-scale forces, including military personnel 
and their equipment, both in the context of the EU Common Security and Defence Policy, as well as 
for national and multinational activities, notably in the framework of NATO.  

To  ensure  the  coherence  of  these  actions,  reflect  the  enlarged  scope  of  “military  mobility  2.0”  and 
facilitate an effective involvement of a wide range of stakeholders, a strategic approach is required.  The 
strategic  approach  of  this  Action  Plan  is  centred  on  the  need  to  develop  a  well-connected  military 
mobility network consisting of:   

and  21 

(17,  18,  19,  20 

the  European  Council 

4  Special  meeting  of 
Conclusions,https://www.consilium.europa.eu/media/45109/210720-euco-final-conclusions-en.pdf, p. 53. 
5  Commission  Implementing  Regulation  (EU)  2021/1328  of  10  August  2021  specifying  the  infrastructure 
requirements  applicable  to  certain  categories  of  dual-use  infrastructure  actions  pursuant  to  Regulation  (EU) 
2021/1153 of the European Parliament and of the Council, C/2021/5859, OJ L 288, 11.8.2021, p. 37. 
6 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. 
7 Canada, Norway and the United States 
8 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 
9 Joint Communication ‘on the Action Plan on Military Mobility’ (JOIN(2018) 5 final. 

July  2020)  – 

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  multi-modal transport corridors, including roads, railways, air routes, and inland waterways 

with dual-use transport infrastructure capable of handling military transports;  

 

transport  nodes  and  logistical  centres  that  provide  the  required  host-  and  transit  nation 
support and sustainment to facilitate the deployment of troops and materiel;  

  harmonised rules, regulations, procedures, and digitalised administrative arrangements;  

 

enhanced  sustainability,  resilience  and  preparedness  of  civilian  and  military  lift  and 
logistical capabilities.  

In line with this approach and reflecting the essential role of the Member States, the Action Plan sets 
out recommended actions that the Member States are invited to take forward in a complementary 
and coherent manner, and in full respect of the sovereignty of EU Member States over their national 
territory and national decision-making processes regarding military movements. This includes Member 
States’ activities through projects in the PESCO framework.  

A  coherent and  coordinated  approach to  military  mobility is a shared  interest with  NATO.  Military 
mobility  continues  to  be  a  “flagship”  for  enhanced  and  intensified  cooperation  between  both 
organisations, in line with EU-NATO guiding principles, with efficient interaction and information 
exchange within the well established staff-to-staff Structured Dialogue.  

3. 

IDENTIFIED ACTIONS 

Following  the  strategic  approach,  the  identified  actions  are  structured  along  four  main  pillars:  the 
multi-model  corridors  and  logistical  hubs,  regulatory  support  measures,  resilience  and 
preparedness, and partnerships.  

3.1  Multimodal Corridors and Logistical Hubs: investing in dual-use transport infrastructure 

At the heart of military mobility is the need to upgrade the dual use transport infrastructure along the 
military mobility network – comprising multi-modal transport routes connected by logistical hubs – so 
that it is capable of handling potentially heavy and large-scale military transports at short notice. The 
EU  Member  States  largely  use  the  same  transport  infrastructure  for  both  civilian  and  military 
movements and transportation. A strengthening of dual-use transport infrastructure across the  trans-
European transport (TEN-T) therefore involves the development of multi-modal transport corridors and 
transport nodes. As a result, development of dual-use transport infrastructure through co-funding from 
the  Connecting  Europe  Facility  (CEF) funding  instrument  continues to  be  an  essential  pillar  of  this 
Action Plan.  

In  accordance  with  the  Strategic  Compass,  the  EU  will  continue  to  strengthen  dual-use  transport 
infrastructure  across  the  trans-European  transport  network  in  order  to  promote  rapid  and  seamless 
movement of military personnel, materiel and equipment for operational deployments and exercises, 
working in close cooperation with NATO and other partners.  

One of the actions implemented under the first military mobility action plan was to co-fund dual-use 
transport infrastructure projects located on both the EU military network as well as the TEN-T network. 
The current TEN-T, which was adopted by the European Parliament and the European Council in 2013, 
includes notably roads, railways, ports and airports in the European Union. In 2019, the Commission 
services and the European External Action Service (EEAS) conducted a gap analysis to compare the 
TEN-T  and  the  EU  military  network.  In  addition,  the  gap  analysis  of  2019  compared  the  military 
requirements  for  transport  infrastructure  to  the  technical  requirements  for  TEN-T  transport 
infrastructure. For the comparison between the military network of the Member States and the TEN-T, 
there was an overlap of 93% between the two networks. This means that the transport infrastructure 

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investments on the trans-European transport network directly improve military mobility. The objective 
is to realise the core network of the trans-European transport network by 2030.  

On 14 December 2021, the Commission proposed to revise the TEN-T Regulation of 2013. It proposed 
notably to extend the core network corridors to the Western Balkan partners. When revising the TEN-
T  Regulation,  the  Commission  included  additional  roads  and  railway  sections  in  the  existing 
geographical  network  to  reduce  the  gaps  with  the  military  network.  The  aim  was  to  enhance  the 
synergies between the civilian and the military sectors’ use of the existing transport infrastructure. In 
addition,  the  Commission  has  proposed  to  raise  several  technical  standards  for  the  TEN-T 
infrastructure. This will directly benefit the movements of military troops and materiel, and thus foster 
military mobility within and beyond the EU. On 27 July 2022, the Commission adopted an amended 
TEN-T proposal to reflect the new geopolitical context following Russia’s war of aggression against 
Ukraine. Four European Transport Corridors are proposed to be extended to Ukraine and the Republic 
of Moldova  to  improve  connections  between the  Union  and  its  neighbouring  partner countries. The 
Commission proposal also addresses the issue of different rail track gauges used in Ukraine, Moldova 
and  in  certain  Member  States  (Baltic  States,  Finland,  Iberian  Peninsula),  which  hinders  rail 
interoperability  and, therefore, resilience  of the network.  The  Commission proposed  measures for a 
progressive migration of railway lines to the European standard track gauge.10 

The following maps illustrate the current TEN-T networks for roads, railways, ports and airports in the 
Union in the European Union (Regulation (EU) 1315/2013). 

10 Amended proposal for a Regulation of the European Parliament and of the Council on Union guidelines for 
the development of the trans-European transport network, amending Regulation (EU) 2021/1153 and Regulation 
(EU) No 913/2010 and repealing Regulation (EU) 1315/2013, COM(2022) 384 final 

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Further  efforts  are  also  required  to  identify  the  gaps  and  bottlenecks  in  the  physical  transport 
infrastructure in Member States. Thus far, the Commission services and the EEAS (including the EU 
Military Staff) have worked on reducing the gap between the TEN-T and the EU military networks in 
the TEN-T revision and by securing funds in CEF military mobility to support dual-use projects. Efforts 
should now focus on ensuring that the infrastructure can be used in the most effective way when military 
forces have to move. The objective is to increase the capacity of the infrastructure and optimise its use, 
for both civilian and military purposes. This requires high resilience of the infrastructure, supporting 
technologies and access to energy, allowing military forces to move substantial capacity within very 
short notice.  

Therefore the Military Requirements within and beyond the EU need to be updated to enable  further 
alignment  of  the  standards  for  the  trans-European  transport  network  and  the  EU  military  transport 
network. As part of this update, the scope of the Military Requirements should be broadened to cover a 
Fuel  Supply  Chain  Infrastructure.  When  moving  large-scale  forces  over a  long  distance  in times  of 
crisis, it is essential to have a secure supply of fuel available along the way.  In addition, as the clean 
energy transition progresses, there is a geostrategic interest in ensuring that large-scale forces are less 
reliant on fossil fuels. Furthermore, the Military Requirements should also address the infrastructures 
and systems for an effective access to airspace and use of air navigation systems. Further increase of 
TEN-T capacity requires also exploring links to the development of logistics hubs.  

There  is  a  need  to  identify  to  what  extent  the  EU  military  transport  network  practically  meets  the 
Military Requirements for infrastructure. Building on the Gap Analysis between civilian and military 
requirements (first presented in 2019 and then updated in 2020), an assessment needs to be done to what 
extent the physical infrastructure  meets the  military requirements. Such  an assessment would allow 
identifying  in  which regions  there  are  gaps,  and  what  types  of  gaps, in  consultation  with  NATO  as 
appropriate. It would then be easier to prioritise infrastructure development and funding at the EU level 
to  accelerate  the  development  of  dual-use  infrastructure  and  to  ensure  the  resilience  of  transport 
network. Such measures will help to create a seamless connection of the military logistical depots and 
infrastructure with the EU-wide transport network. Infrastructure ensuring rapid deployment of military 
forces will also directly benefit civilian uses, for example new infrastructure capacity that could be used 
by Member States mutually assisting each other for urgent interventions to combat wildfires. 

To  facilitate the  coherence  and  linkages  between  Member  States’  activities  –  including  through  the 
relevant different PESCO projects, notably on Military Mobility and Logistical Hubs – and EU-level 
work strands across the full range of topics, an annual event could be established to bring together 
different stakeholders from EU institutions, relevant PESCO projects and partners such as NATO. A 
first event could take place in the second half of 2023. 

Key actions at EU level: 

  By  the  end  of  2022,  the  EEAS  (including  EUMS)  in  coordination  with  Member  States, 
Commission services and EDA, will update the Military Requirements within and beyond 
the  EU.  The  Military  Requirements  will  be  expanded  to  cover  Fuel  Supply  Chain 
Infrastructure  and  include  the  dual  use  of  the  air  traffic  management  communication, 
navigation and surveillance systems and infrastructures, allowing effective access to airspace 
and use of air navigation services11. Coherence with NATO will continue to be ensured as 
appropriate. 

11 Air traffic management (ATM) (network management, interoperability, provisions of air navigation services, 
use of airspace by civilian and military users) in the Union is addressed in the single European sky initiative and 
the SESAR project. The underlying regulatory framework affects the dual-use of ATM systems and 
infrastructure. 

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  EDA and Commission services will continue their cooperation in ensuring access to airspace 
and  air  navigation  services  for  civil  and  military  aviation  in  the  context  of  the  Single 
European Sky (SES) and the related Air Traffic Management Research (SESAR). 

  By mid-2023, Commission services together with the EEAS will carry out a study to identify 
possibilities for short-notice, large-scale movements to improve  fuel resilience,  long-term 
infrastructure  planning  and  optimal  use  of  this  infrastructure.  The  study  will  include  an 
analysis to what extent the physical EU military transport network meets the infrastructure 
requirements  as  identified  in  the  Military  Requirements,  in  consultation  with  NATO  as 
appropriate. Based on input by national authorities, the Commission services and EEAS will 
analyse possible gaps and suggest actions to address them.  

  By summer 2023, the EEAS, in consultation with Commission services and the EDA, will 
liaise with a willing Member State to organise the first annual event on military mobility 
bringing a whole of Government approach with relevant stakeholders. 

  As indicated in the Joint Communication on the Defence Investment Gaps Analysis and Way 
Forward, the Commission will, within the overall review of priorities in the mid-term review 
of the Multiannual Financial Framework (MFF), consider strengthening the military mobility 
budget through the Connecting Europe Facility to implement dual-use infrastructure projects 
within the constraints set by the MFF. 

EU Member States are invited to: 

  Maintain and develop the network of national points of contact for military mobility. 

  Develop and submit  dual-use infrastructure project proposals in all transport domains that 
improve military mobility in line with the CEF and its stated priorities with a particular focus 
on  transport  actions  that  at  the  same  time  address  climate  action,  including  projects  to 
improve energy security. 

  Contribute  to  the  update  of  the  Military  Requirements  for  Military  Mobility  within  and 

beyond the EU and submit proposals for new areas to be included. 

  By mid-2023, present to the Commission services and EEAS their national assessments of 
the  physical  networks’  ability  to  meet  the  infrastructure  requirements  identified  in  the 
Military Requirements, to feed into the aforementioned study. 

  Look  for  synergies  on  energy  efficiency  in  their  national  strategies  to  prepare  the  armed 
forces for climate change before the end of 2023, as called for in the Strategic Compass. 

3.2   Regulatory Support Measures 

Harmonised  procedures  and  removal  of  procedural  barriers  will  facilitate  swift  military  movement. 
Such measures should respect the sovereignty of EU Member States over their national territory and of 
  The  work  ahead  should  focus  on  implementing  and 
national  decision-making  processes. 
complementing the various work strands launched since 2018 with the objective of helping Member 
States to fulfil their “military mobility pledge” of 201812.  

12   Conclusions Foreign Affairs Council, 25th June 2018, paragraph 18: “Calls on Member States to take action 
nationally to improve the efficiency of military mobility, and to simplify and standardize relevant rules and 
procedures in coherence with the Action Plan and the Military Requirements for Military Mobility within and 
beyond the EU, in accordance with national legislation of the Member States, as soon as possible but no later 
than 2024, and aim at the following first steps to be achieved by the end of 2019:  

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3.2.1  Cross-border movement permissions 

To assist movement of military personnel and assets, the EU has facilitated crossing borders by using 
different  modes  of  transport.  The  EDA’s  programme  on  “Optimising  Cross-Border  Movement 
Permission Procedures in Europe” (CBMP) was established to harmonise and simplify cross-border 
movement  procedures,  addressing  both  regulatory  and  procedural  issues.  In  November  2021,  two 
Technical  Arrangements  were  signed,  one  for  the  surface13  and  one  for  the  air  domain14.  These 
arrangements  specify  the  procedures  that  have  to  be  followed  for  movement  during  crisis  times, 
preparation for crises, training and day-to-day.  

In certain cases, Member States still need to integrate these arrangements into national processes. EDA 
is  currently  facilitating  their  implementation,  also  through  the  National  Point  of  Contact  (NPOC) 
network  established  by  the  PESCO  project  Military  Mobility.  This  will  shorten  the  movement 
permission  processes  and  thus  help  the  participating  Member  States  to  meet  the  agreed  goal  of 
responding within five working days. EDA also started work to develop a third cross-border movement 
permission arrangement in the maritime domain. 

3.2.2  Customs 

In July 2020, legal amendments15 came into force to simplify the customs formalities for military goods 
and to establish a legal framework for the EU Form 30216.  

The  EDA  Category  A  Programme  Arrangement  “Harmonise  Military  Requirements  Related  to 
Customs”  was  signed  in  May  2021  by  23  contributing  Member  States  plus  Norway.  It  aims  at  the 
digitalisation  of  military-related  customs  activities  and  at  making  the  resulting  dataset  available  for 
exchange with civilian customs authorities. To date, the work has focused on the first objective of the 
programme, which is  an assessment of the needs, gains and risks for the development of  a  military 
customs system used by the contributing Member States. The latter, supported by EDA, are working in 
close  coordination  with  Commission  services  to  ensure  compliance  with  the  customs  procedures  as 
described in the Union Customs Code (UCC). The results of this assessment will provide the foundation 
for next steps, particularly to define specifications and requirements for the digitalisation of military 

a) develop national plans for military mobility and give their implementation high priority;  
b) in accordance with relevant standardized procedures and subject to national decision making and criteria, 
accelerate border crossing procedures, and to that end work with competent national authorities towards 
granting cross border movement permissions, including requests for entry and movement permission for all 
modes (surface, air and sea) and aspects of military movement and transportation, for routine activities within 1 
working days; and consider to bring this period further down for rapid reaction units;  
c) facilitate and speed up communication and procedures, and to that end create a strong interconnected network 
of National Points of Contact for all aspects relating to military mobility to, amongst others, be able to quickly 
handle requests for cross-border movements;  
d) use suitable existing national and multinational exercises to practice more regularly military mobility, 
including during live exercises, and short notice movements”.   
13 The Technical Arrangement on Surface Movement aims to enhance the military mobility for road, rail and 
inland waterways by harmonising and simplifying administrative procedures and fostering movement 
permissions. It has been signed by 23 contributing Member States and Norway. 
14 The Technical Arrangement for Air Transport aims at encompassing a wider range of missions, 
complementary to the existing Diplomatic Clearance (DIC) Technical Arrangement, including air-to-air 
refuelling, Remotely Piloted Aircraft System (RPAS) platforms, training missions, fighter jets and rotary wings. 
It has been signed by 22 contributing Member States and Norway. 
15 As a result of two years of work done by the Commission, in cooperation with EDA and the EU Member 
States, several amendments to the Commission Delegated Regulation (EU) 2015/2446 and to the Commission 
Implementing Regulation 2015/2447, namely the Delegated and Implementing Acts of the Union Customs Code 
(UCC), were published in the Official Journal. 
16 https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:02015R2446-20220101&from=EN 

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customs,  including  notably  electronic  data  processing  techniques  for  the  exchange  of  information 
between customs and military forces. 

The  Commission  would  work,  if  needed,  on  the  legal  amendments  and  on  the  monitoring  of  the 
development of the digital system for the secure and quick exchange of information related to military 
mobility to ensure that there is a legal framework covering the use of the System by the Member States 
and  that  the  System  is  aligned  with  the  customs  procedures  as  established  in  the  EU  Customs 
Legislation.  

3.2.3  Digitalisation of administrative processes 

As set out above, under the 2021 annual work programme, the European Defence Fund (EDF) included 
a proposal for the development of a digital system for the quick and secure exchange of information 
related to military mobility. A consortium consisting of companies from nine Member States plus one 
partner country17 has been pre-selected to receive funding for the development of this digital system, 
which could be available in mid-2025. 

The Commission would assist the contractor developing the system and would ensure its use by all the 
Member States. 

3.2.4  Enhanced logistics 

Enhanced logistics is a critical enabler in all operational domains of Member States’ Armed Forces. 
Heterogenous national logistics systems and processes tailored to individual needs are a major challenge 
for the coherence of the European capability landscape. Therefore, EDA is supporting the development 
of common standards for an EU-wide logistics IT network,18 in line with the respective EU Capability 
Development Priority and a specific work strand of the CARD focus area Enhanced Military Mobility. 
Such  an  IT  network  would  enable  an  effective  management  of  stocks  and  supplies,  including  a 
cooperative warehouse management and Track & Trace capability to improve awareness of the logistic 
supply chain.  

Furthermore,  common  standards  for  military  Additive  Manufacturing  (AM)  solutions  should  be 
developed, to take advantage of the technology, which can potentially ensure rapid military movements 
by speeding up the provision of spare parts within the logistic supply chain. Additionally, AM as a key 
technology  contributes  to  both  sustainability  and  industrial  competitiveness.  Finally,  reducing  the 
logistical footprint – such as the required (re)-supply, maintenance, and other logistics required when 
moving a military unit and/or materiel – would free up capacities and resources, and thus make military 
movements more efficient and faster. For example, the inspection and maintenance of mutually used 
equipment and certification of military equipment, such as ammunition, could be done in a collaborative 
manner either on site or at logistical hubs, using existing standards. Enhanced Host Nation Support or 
other forms of multinational cooperation could help reduce the logistical footprint in this regard.  

Key actions at EU level: 

  By 2024, EDA will support participating Member  States to fully implement the technical 
arrangements  for  cross-border  movement  permissions  procedures  for  surface  and  air  by 
monitoring  their  usage  as well as  by  identifying  and  resolving  bottlenecks  and obstacles; 
identify fields not covered in the signed Technical Arrangements and improve their content; 
and develop a Technical Arrangement for the maritime domain. 

17 Estonia, Lithuania, Germany, Bulgaria, Poland, Luxemburg, Rumania, Czech Republic, Latvia plus Norway 
18  Logistics  is  a  closed  and  resilient  system,  where  all  suppliers,  consumers  and  third  parties  are  contributing 
mutually to the supply chain. Logistics composed of Procurement, Movement & Transport, Training, Distribution 
and Supply Management. The aim of Logistics is to provide the demanded quantity and quality of goods at the 
requested time and location. 

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  By the end of 2024, EDA will assess how to increase synergies between the work done by 
the PESCO project “Military Mobility” and the PESCO project “Network of LogHubs in 
Europe and Support to Operations”. 

  The Commission will identify topics under the European Defence Fund in future annual work 
programmes that will enhance Military Mobility where they are in line with the objectives 
and criteria of the EDF. 

  The Commission will monitor the development of the digital system for the secure and quick 
exchange of information on military mobility and, if needed, will prepare legal amendments 
to the EU Customs Legislation to ensure that there is a legal framework for the use of the 
System by the Member States and that the System is aligned with the customs procedures as 
established in the EU Customs Legislation. 

  By 2024, EDA will elaborate a concept for an EU-wide logistics IT network to enable the 
exchange  of  logistic  data  amongst  various  participants.  By  2023,  EDA  will  present  the 
findings of a study on mapping of national and commercial logistics IT systems, including 
the Track & Trace and Enterprise Resource Planning (ERP) software, which will serve as a 
basis for initiating further actions.  

  By 2024, EDA will define a first package of common standards to promote military use of 

Additive Manufacturing solutions in an interoperable manner.  

EU Member States are invited to: 

  Meet,  by  the  end  of  2023,  the  maximum  5  working  days  objective  for  border  crossing 
procedures as part of the military mobility “pledge” agreed by the Council in June 2018 and 
explore the possibility of reducing the time to 3 working days for rapid reaction units, with 
a view to a possible update of the “pledge”. 

  Participate in and provide the necessary data for relevant studies undertaken at EU level. 

  Actively support the development of a Technical Arrangement for Cross Border Movement 

Permissions for the maritime domain. 

3.3  Resilience and Preparedness 

A well-functioning military mobility network needs to be resilient, including in the context of cyber, 
climate change and other hybrid threats that may target critical nodes in the transport system used by 
the military. For example, a cyber-attack on systems used in airports, harbours or railroads or a cyber-
attack on military assets could have major consequences. Thus, digitalising processes and procedures, 
including for the necessary civilian and military cooperation, will require to harden the CIS/IT systems 
against cyber threats. Member States will need to take action in that respect, building on  the EDA’s 
work.  Furthermore,  beyond  ensuring  the  prerequisites  for  military  mobility,  Member  States  should 
enhance the mobility and deployability of their armed forces, to ensure that they can rely on both civilian 
and military transport infrastructure and capabilities in times of crisis.  

3.3.1  Strategic lift capabilities  

Strategic lift capabilities are critical to ensure that Member States can deploy their forces and equipment 
swiftly within and beyond the EU. The first Coordinated Annual Review on Defence Report, approved 

11 

 
 
 
 
 
 
by EU Ministers of Defence in November 202019, includes “Enhanced Military Mobility” as one of its 
focus areas. It highlights the need for improved resilience, strategic lift capabilities and logistics, taking 
into account hybrid threats to military movements, and put forward suggestions to address such threats 
in a holistic manner.  

In line with the Enhanced Military Mobility focus area, the EU needs to identify and address gaps and 
deficits in our logistical capacity, including land (also inland waterways), sea, and airlift capabilities, 
required  for  an  effective  and  efficient  movement  of  large-scale  forces.  In  this  respect,  improved 
European strategic airlift capacities in the critical area of outsized or specialised cargo (e.g. transporting 
ammunition) are needed. The EDA framework could support in the adaptation of civil outsized cargo 
assets  for  military  purpose,  thereby  maximising  civil-military  synergies  and  taking  into  account 
activities of the PESCO Project “Strategic Air Transport for Outsized Cargo (SATOC)”.20 Furthermore, 
possible requirements for sealift and specialised rail transport assets should be identified.  

To  make  optimal  use  of  airlift  capabilities,  the  EU  should  enhance  the  coordination  of  movement 
capacity, including by liaising with the different multi-national movement coordination structures in 
Europe21. This includes developing links between the EEAS and EDA and such structures, to address 
concrete requests and coordinate broader logistical challenges.  

Finally, lessons drawn from Russia’s war in Ukraine show the limited capacity of the civilian sector to 
meet the urgent and possibly large-scale demand of the military in times of crisis. To overcome the 
“first-come, first-served” principle, emergency measures need to be put in place to ensure that, when a 
security crisis is recognised at EU level, the military can be provided with priority access to transport 
infrastructure, capacities or routes – for example building on framework contracts and other practical 
steps to prepare for such situations and in full respect of the sovereignty of EU Member States over 
their  national  territory  and  decision  making  processes  regarding  military  movements.  Also  in  this 
context, dependency on fossil fuel should be reduced where possible. Following this rationale, The EU 
could assess possibilities to secure access to strategic lift capacities, for example through framework 
contracts with civilian providers, including for dual use in disaster relief scenarios (e.g. to ship medical 
and  CBRN-decontamination  infrastructure).  To  ensure  sufficient  lift  capabilities,  alignment  with 
civilian partners is key, starting with a mapping of all relevant civilian actors per transport mode. 

3.3.2  Exercises 

Exercises in different formats are indispensable to test our infrastructural and procedural improvements, 
while identifying remaining hurdles and bottlenecks. A scenario-based discussion on military mobility 
was held in January 2021 as a side event to the EU Crisis Management Exercise Integrated Resolve 
2020.22 We should continue these table-top exercises and inject military mobility objectives in ‘live 
exercises’ including those proposed in the context of the Rapid Deployment Capacity put forward in 
the  Strategic  Compass  or  by  participating  in  other  multinational  exercises  including  in  the  NATO 
context as appropriate. 

19  The  Capability  Development  Plan  revision  approval  and  implementation,  EDA  Steering  Board  Document 
2018/15, 28 June 2018. 
20 The overall aim of the project Strategic Air Transport for Outsized Cargo is to fill the critical shortfall for 
Strategic Air Transport for Outsized Cargo by developing a European solution for the transport of outsized and 
heavy cargo. 
21 Such as: European Airlift Transport Command (EATC), Movement Coordination Centre Europe (MCCE; all 
modalities), and the Athens Multinational Sealift Coordination Centre (AMSCC). The EU’s liaison  with these 
structures  will  be  done  in  full  respect  of  the  principles  of  inclusivity  of  all  Member  States  in  multinational 
structures as reaffirmed in the Council Conclusions on Security and Defence of 17 June 2020 (paragraph 21) 
22 The event brought together participants from the EU Member States, the European External Action Service 
including  the  EU  Military  Staff,  the  Commission  services,  the  European  Defence  Agency,  as  well  as  key  EU 
partners – NATO staff and three NATO Allies – the United States of America, Canada and Norway. 

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3.3.3  Protection against security risks in the transport sector 

Increasing vulnerabilities in our military transport system may be exploited to disrupt military mobility. 
There is an urgent need therefore to address the resilience of the network that we are putting in place, 
to  protect  it  against  hybrid  and  other  threats,  including  with  regard  to  the  civilian  and  commercial 
transport  sector.  Further  work  in  this  area  will  benefit  from  the  ongoing  actions  to  counter  hybrid 
threats23  and  on  critical  infrastructure  protection,  including  in  the  light  of  the  recent  Proposal  for  a 
Council Recommendation on a coordinated approach by the Union to strengthen the resilience of critical 
infrastructure (2022/0338 (NLE)).24 

In particular, the EU should enhance cooperation to address the following issues:   

  To strengthen the physical resilience against natural and man-made threats of those entities that provide 
essential services in the transport sector. This includes implementing the Directive on the resilience of 
critical entities25 (CER Directive) in the transport sector as well as facilitating the swift adoption and 
subsequent implementation of the Proposal for a Council Recommendation on a coordinated approach 
by Union to strengthen the resilience of the critical infrastructure, where transport is one of the key 
sectors26. 

  The  cybersecurity  of  the  civilian  transport  sector  and  its  support  systems,  including  traffic  control 
systems (air, rail, sealift), container terminal management systems, control systems for locks, bridges, 
tunnels etc. This includes accelerating the transposition  and implementation of the recently adopted 
revised Directive on Measures implementing of the Network and Information Security Directive (NIS2 
Directive)27 in the transport sector and the work done on resilience baselines in the context of countering 
hybrid threats. In case of a cybersecurity crisis, it is essential to ensure a proper exchange of necessary 
information to ensure the fullest possible situational awareness among the military and civilian transport 
sectors.  This  should  also  include  cooperation  between  relevant  sectoral  authorities  responsible  for 
transport, competent cybersecurity authorities and CSIRTS, and, in line with its tasks as envisaged in 
the  Directive  NIS2,  through  the  European  Cyber  Crises  Liaison  Organisation  Network  (EU  – 
CyCLONe). Synergies with TEN-T should be explored28. Member States are also invited to make use 
of the Commission short-term support programme implemented with ENISA to step up preparedness 
of essential entities in the transport sector, for instance through penetration testing.  

  Foreign Direct Investments by non-EU entities into infrastructures and transport operations within the 
EU that are also critical for military transport may represent a security risk for the EU and its Member 
States. Foreign Direct Investment by third countries in dual-use infrastructure within the EU could pose 
risks  to  its  security  and  public  order.  This  is  especially  the  case  when  third  countries  use  financial 

23   Joint Staff Working Document Fifth Progress Report on the implementation of the 2016 Joint Framework on 
countering hybrid threats and the 2018 Joint Communication on increasing resilience and bolstering capabilities 
to address hybrid threats {SWD (2021) 729 final}. 
24 Joint Staff Working Document Fifth Progress Report on the implementation of the 2016 Joint Framework on 
countering hybrid threats and the 2018 Joint Communication on increasing resilience and bolstering capabilities 
to address hybrid threats {SWD (2021) 729 final}. 
25 COM (2020) 829 final. A political agreement has been found on the CER Directive in June 2022 and its entry 
into force is expected in early 2023. CER Directive will replace the Directive 2008/114/EC of 8 December 2008 
on the identification and designation of European critical infrastructures and the assessment of the need to 
improve their protection.  
26 The proposal for a Council recommendation was adopted on 18 Oct 2022. 
https://ec.europa.eu/commission/presscorner/detail/en/ip_22_6238 
27 This Directive will be repealed and replaced by a Directive on measures on high common level of cybersecurity 
across the Union (NIS2 Directive) 
28 COM (2020) 829 final. A political agreement has been found on the CER Directive in June 2022 and its entry 
into force is expected in early 2023. CER Directive will replace the Directive 2008/114/EC of 8 December 2008 
on the identification and designation of European critical infrastructures and the assessment of the need to 
improve their protection. 

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measures to negatively impact connectivity, or when sensitive intelligence becomes available for third-
country  investors.  A  strong  overlap  between  civilian  and  military  infrastructure  means  additional 
vulnerability in the context of FDI. Such investments will be carefully screened in the framework of 
the FDI Screening Regulation29 and TEN-T30. 

  The impact of climate change and green energy transition on the resilience and energy security of EU 
Member States’ military transport infrastructure and capabilities. Rising sea levels and more extreme 
weather events add new requirements to military installations while reducing dependency on fossil fuels 
in military transport also has implications for the security and availability of renewable energy sources 
and  related  technologies31.  This  work  will  draw  on  relevant  results  of  the  Consultation  Forum  for 
Sustainable  Energy  in  the  Defence  and  Security  Sector  (CF  SEDSS),  including  research  studies  on 
climate change adaptability and hybrid threats’ impact on defence, and will identify opportunities for 
using renewables in military transport, e.g. hydrogen. 

Resilience can also be enhanced by exploring the possibilities for civil and military configurations of 
aircraft models to mutually recognise their spare parts. Currently, the European Union Aviation Safety 
Agency (EASA) certifies civilian aircraft and their components used for maintenance and repairs, while 
military aircraft and components are certified by the Member States for national security reasons. This 
approach causes duplication:  military aircraft should be able to exchange their spare parts with those 
certified  for  civilian  use  if  they  are  identical.  Without  changing  the  competences  of  EASA  or  the 
Member States, a new mechanism could be envisaged to simplify the procedures of aircraft certification 
and maintenance by allowing components and parts certified by EASA to be pooled for joint usage by 
military and civilian operators, thus significantly reducing the costs of military aircraft maintenance 
while simultaneously increasing flight safety. A pilot study should be launched to identify synergies 
between the two certification mechanisms. In addition, operations in the air domain heavily rely on the 
effective  exchange  and  sharing  of  digital  data  among  relevant  civil  and  military  stakeholders  and 
operators.  

This calls for a joint civil-military endeavour to ensure a resilient and robust data sharing network with 
a high level of cybersecurity. 

3.3.4. Space-based solutions for military mobility 

The  current  and  future  space-based  navigation  (Galileo/EGNOS)  secured  communication  and  Earth 
Observation (Copernicus) have the potential to significantly benefit military mobility. We should assess 
how to harness this potential.   

The  Public  Regulated  Service  (PRS)  is  the  most  secure  Galileo  navigation  service  suitable  for 
governmental applications that must be reliable even under crisis situations, equivalent to the GPS M-
Code. Galileo PRS could bring direct benefits to military mobility by providing uninterrupted secure 
and accurate Position Navigation and Timing information in contested environments, fulfilling critical 
operational  needs  in  the  theatre  of  operations,  and  contributing  to  informed  decision-making  and 
command and control. 

The  European  Geostationary  Navigation  Overlay  Service  (EGNOS),  even  though  not  designed  to 
operate in a conflict zone, can offer important operational benefits for logistics and transport operations. 

29 Regulation (EU) 2019/452 of the European Parliament and of the Council of 19 March 2019 establishing a 
framework for the screening of foreign direct investments into the Union. 
30 See Article 47, Proposal for a Regulation of the European Parliament and of the Council on Union guidelines 
for  the  development  of  the  trans-European  transport  network,  amending  Regulation  (EU)  2021/1153  and 
Regulation (EU) No 913/2010 and repealing Regulation (EU) 1315/2013, COM(2021) 812 final. 
31 Through CF SEDSS III, EDA is conducting, in collaboration with DG JRC and DG ENER, research studies to 
explore the impact of climate change on defence-related critical energy infrastructures (CEI) and how to increase 
their  resilience  against  hybrid  threats.  In  this  context,  a  table-top  exercise  will  be  held  in  2023  to  identify 
vulnerabilities and promote synergies with the civilian sector to enhance defence resilience 

14 

 
 
                                                           
In adverse weather conditions, it can enable secure access to air bases and regional airports not having 
other means.  

The new Union Secure Connectivity Programme, for which the Commission proposed a Regulation on 
15 February 2022, aims at ensuring worldwide access to secure governmental satellite communication 
services. A range of use cases have been studied in this context, including on traffic management and 
military missions. From this analysis, it is clear that secure connectivity is increasingly a strategic asset 
for  the  use  of autonomous  vehicles  and  aircraft.  Military  mobility  needs  need  to  be  duly taken into 
account in the definition of the service portfolio of the secure connectivity system. 

The EU's Earth observation programme Copernicus offers information services that draw from satellite-
based Earth Observation (from the Copernicus Sentinel satellites or commercial satellites) and in-situ 
(non-space) data in three main areas: 1) environmental monitoring (land: land cover and use, Digital 
Elevation  Model,  EU  river  network  and  water  bodies  reference  data;  marine;  atmosphere;  climate 
change), 2) emergency management (in case of natural or man-made disasters, e.g. flood, earthquakes, 
forest fires),  and  3)  security  (border  and  maritime  surveillance,  and  support  to EU  external action). 
Possible links to military mobility could be further explored.   

CASSINI- the Commission’s initiative  to foster space entrepreneurship in the EU  will stimulate the 
development  of  disruptive  technologies,  industrial  processes  and  services.  The  emergence  of  new 
commercial players will expand the range of space-enabled solutions, including for military mobility.  

Key actions at EU level: 

  EDA,  in  close  consultation  with  Member  States,  EEAS  and  Commission  services,  will 
follow-up  on  the  CARD  focus  area  Enhanced  Military  Mobility,  to  address  the  gaps  and 
deficits with regard to the resilience as well as the logistical and lift capacity required for the 
movement  of  large-scale  forces,  including  notably  outsized  or  specialised  cargo  (e.g. 
dangerous goods requiring specific measures). 

  By 2023, the EEAS will assess the logistical footprint for CSDP missions and operations, 
notably with regard to certifications and inspections, as well as identify possible gaps in the 
lift capacity, and provide recommendations on collaborative opportunities.   

  By 2023, EDA will explore the adaption of civil outsized cargo assets for military purposes, 
taking into account activities of the PESCO Project “Strategic Air Transport for Outsized 
Cargo (SATOC)”. 

  By 2024, EDA will identify possible requirements for specialised rail transport assets and 

strategic sealift capabilities. 

  EEAS, EDA and Commission services will explore how to strengthen the coordination of 
movement  capacity,  including  by  seeking  synergies  with  multi-national  movement 
coordination centres. 

  By the end of 2024, Commission services will provide an overview per transport mode of all 
key  actors  in  the  civilian  domain  for  emergency  and  crisis  planning  and  coordination 
purposes. 

  By 2024, EDA, together with Commission services and EEAS (including EUMS), will assess 

the benefit of strategic lift capacities for dual use, such as disaster relief. 

  The  EEAS,  Commission  services  and  EDA  will  exploit  multinational  exercises  to 
mainstream military mobility activities (deployment, sustainment and redeployment of the 

15 

 
 
 
forces), including EU live exercises and Parallel and Coordinated Exercises with NATO, as 
well as through EU participation in NATO exercises, as appropriate. 

  The EEAS, together with Commission services and the EDA, will organise scenario-based 

exercises involving Member States’ experts. 

  EDA and Commission services will continue their efforts  to ensure reliable and effective 
exchange  and  sharing  of  digital  data  between  relevant  civil  and  military  aviation 
stakeholders.  

  The Commission services, the EEAS and the NIS cooperation group, in coordination with 
relevant civilian and military bodies and agencies and established networks will conduct on 
a regular basis risk evaluation and risk scenarios from a cybersecurity perspective, focusing 
on priority critical sectors. This will be carried out to ensure complementarity with the stress 
testing of critical infrastructures, as set out in the presidential 5-point plan and the subsequent 
proposal for a Council recommendation on critical infrastructure resilience.  

  EDA,  together  with  EEAS  and  Commission  services,  will  build  on  ongoing  initiatives  to 
enhance  the  climate  resilience  and  energy  security  of  military  installations  and  transport 
capabilities that are necessary for military mobility, and put forward recommendations to 
Member States as part of the work on climate and defence. Synergies with TEN-T will also 
be explored. 

  By the end of 2023, Commission services together with EASA, and in collaboration with the 
military  aviation  authorities  and  industry,  will  launch  a  pilot  project  establishing  a 
mechanism of mutual recognition of parts used by civil and military configurations of aircraft 
models. The project should include the elaboration of a civilian-military interface agreement 
to define the responsibilities of the different parties. The pilot project should be finalized no 
later than two years after the adoption of the Action Plan.  

  Commission services, EDA and EEAS will explore a set of emergency measures that would 
provide the military with prioritised access to transport infrastructure, capabilities and routes, 
when necessary, in times of crisis recognised at EU level To enhance civil/military synergies, 
they will assess possibilities to secure access to strategic lift capacities, for example through 
framework contracts with civilian providers. 

EU Member States are invited to: 

  Ensure the cyber-resilience of the future digital processes and procedures, building on the 
EDA’s work and exploring the possibility of developing functional requirements related to 
security 

4.  PARTNERSHIP DIMENSION 

The EU and NATO have a shared interest in ensuring the swift movement of military personnel and 
their equipment for  both routine peacetime  activities  and in times of  crisis. Ensuring coherence and 
mutual reinforcement with regard to respective strands of work has therefore been an integral part of 
the military mobility initiative since its launch. In light of the war in Ukraine, new questions have arisen 
regarding the need to connect transport routes to neighbouring countries and regions, including Ukraine.   

4.1  EU-NATO 

Partnership with NATO is an integral part of this Action Plan. The Structured Dialogue on Military 
Mobility is the main format to promote dialogue and cooperation at staff level through regular meetings 
and will continue to rely on the reciprocal exchange of information between the two organisations. The 
investments in dual-use transport infrastructure for military movements are to the benefit of both the 

16 

 
 
 
 
EU and NATO. The technical and geographical requirements overlap, and the technical standards have 
been developed through  cooperation.  Thanks  to this  cooperation,  the  EU Military  Requirements  for 
Military Mobility are consistent with NATO’s requirements to a level of around 95%.  

The intent is to ensure a coherent approach and synergies between the EU and NATO and to effectively 
address  existing  barriers,  including  legal,  infrastructure  and  procedural,  in  order  to  facilitate  and 
expedite movement and border crossing of military personnel and material, in full respect of sovereign 
national decisions. This applies in particular to efforts with regard to infrastructure improvements and 
the related requirements, reducing procedural and regulatory barriers, enhancing resilience, and cross-
participation in military mobility-related exercises.  

Interactions on military mobility will be taken forward in line with the guiding principles of enhanced 
and  intensified cooperation,  notably  full  openness  and  transparency,  respect  of the  decision-making 
autonomy and procedures of both organisations, inclusiveness and reciprocity, without prejudice to the 
specific character of the security and defence policy of any EU Member State.  

4.2 Connecting to other partners 

The  EEAS,  together  with  Commission  services  and  the  EDA  will  explore  cooperation  with  other 
partners in different formats on issues related to military mobility. 

This includes discussing military mobility- related developments in the security and defence dialogues 
with relevant key EU partners, such as those participating in the PESCO project on Military Mobility, 
notably the U.S., Canada and Norway. The United Kingdom is also expected to join soon this PESCO 
project, upon completion of relevant procedures . This will contribute to transatlantic cooperation on 
such matters and tothe EU-NATO partnership.  

Moreover, there is scope to explore the dual-use possibilities of the ongoing work on better connecting 
Member States’ main transport routes to key partner countries such as Ukraine, as envisaged in the 
Communication on “solidarity lanes” between the EU and Ukraine and the Commission proposal of 27 
July  2022  extending  four European Transport  Corridors to  Ukraine and Moldova.32  In  addition,  the 
amended proposal for a revised TEN-T Regulation in July 2022 includes a provision to standardise the 
European track gauge for railways to improve interoperability between Ukraine, Moldova and the EU.  

Finally, the EU is ready to share best practices from the progress it has made in  enhancing military 
mobility with regional partners and enlargement countries, such as in the Western Balkans, for example 
with regard to the whole-of-government approach, dual-use approach and practical steps to reduce the 
administrative burden and delays.  

Key actions at EU level: 

  The  EEAS  together  with  Commission  services  and  EDA  will  continue  the  EU-NATO 
Structured Dialogue on military mobility with a view to sharing information and ensuring 
coherence of respective work strands. 

  The EEAS together with Commission services and EDA will include military mobility where 
necessary in the security and defence dialogues with relevant partners, notably with Canada, 
Norway and the US. 

  The Commission services and the EEAS will explore dual use possibilities of the ongoing 
work on better connecting Member States’ main transport routes with a particular focus on 
Ukraine and Moldova. 

32 Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social Committee and the Committee of the Regions: An action plan for EU-Ukraine Solidarity Lanes to facilitate 
Ukraine's agricultural export and bilateral trade with the EU, COM(2022) 217 final  

17 

 
 
  
                                                           
  The  EEAS  and  Commission  services  will  explore  possibilities  to  promote  dialogue  with 

regional partners, in particular enlargement countries, on best practices. 

5. WAY FORWARD 

The Action Plan on Military Mobility is submitted by the High Representative and the Commission to 
the EU Member States for consideration and endorsement, so that it can be implemented in a timely 
and coordinated manner.  

Periodic joint progress reports on the implementation of this Action Plan will be presented to the EU 
Member States, with the first to be submitted by November 2023. 

18