REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the implementation of EU macro-regional strategies
Date: 2022-12-09
Institutions: Directorate-General for Regional and Urban Policy, European Commission
Subjects: Adriatic and Ionian region, Alpine Region, Baltic Sea region, Danube region, EU macroregional policy, EU strategy, European territorial cooperation, economic and social cohesion, regional cooperation, regional development

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 9.12.2022  COM(2022) 705 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the implementation of EU macro-regional strategies {SWD(2022) 397 final}  
 
 
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE 
COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

on the implementation of EU macro-regional strategies 

1.  INTRODUCTION 

EU macro-regional strategies (“MRS”) are political frameworks initiated by EU and non-EU 
countries  located  in  a  defined  geographical  area.  These  frameworks  address  common 
challenges  and  opportunities  through  setting  shared,  long-term  objectives  like  “Saving  the 
Baltic  Sea”.  Contrary  to  classical  projects  in  traditional  Commission  funding  programmes, 
the focus of the MRS is not on one-time activities with a predetermined beginning and a fixed 
end  date.  The  MRS  are  essentially  cooperation  frameworks  establishing  networks  of 
stakeholders that form a transnational, cross-sectorial mosaic of expertise with a potential for 
further  cooperation,  value  and  prosperity  creation.  The  aim  is  to  improve  institutional 
capacities  with  the  ability  to  create  innovative  and  inclusive  services  that  can  empower 
people and stakeholders, making them actively contributing to the development of prosperous 
and open macro regions in the medium to long term. 

MRS  address  issues  requiring  several  countries  to  cooperate  based  on  a  cross-sectoral  and 
multi-level  governance  approach.  The  MRS  sharpen  the  identity  of  their  areas  while 
increasing  responsibility  and  active  involvement  of  citizens.  The  soft  character  of  MRS 
cooperation is an advantage as it opens for solutions that often are difficult to achieve in more 
formalised contexts characterised by competing national interests. This is why the MRS have 
been  successful  in  helping  to  clean  up  the  Baltic  Sea,  in  improving  the  navigability  of  the 
Danube  through  fairway  rehabilitation  and  maintenance,  in  creating  the  conditions  for 
developing hydrogen as an alternative green fuel in the Alps and in strengthening the Adriatic 
and Ionian region as a top-class tourism destination.  

MRS  also  facilitate  the  implementation  of  core  European  political  initiatives  across  their 
territories  aligning  and  coordinating  them  with  regional  and  local  initiatives.  Similarly,  the 
MRS  bring  a  territorial  dimension  to  the  green,  digital  and  social  transition,  including  in 
addressing  the  consequences  of  the  war  in  Ukraine  and  the  recovery  from  the  pandemic. 
Finally, the MRS provide a good introduction to how the European Union works for Ukraine, 
Moldova, the Western Balkan countries and others aspiring to join the EU. 

The four MRS involve 19 EU and 10 non-EU countries. They are: 

the EU strategy for the Baltic Sea Region (EUSBSR, 2009); 
the EU strategy for the Danube Region (EUSDR, 2011); 
the EU strategy for the Adriatic and Ionian Region (EUSAIR, 2014); and 
the EU strategy for the Alpine Region (EUSALP, 2016). 

 
 
 
 
From 2016, as requested by the Council1, every second year the Commission has published 
an implementation report of the four MRS. This is the fourth report, covering the period from 
mid-2020 to mid-2022. It assesses the state of play and progress on implementing the MRS 
and examines ways forward. It is complemented by a staff working document (SWD) which 
provides  specific  information  on  each  MRS.  Both  documents  are  based  mainly  on 

1   Council conclusion on the EU Strategy for the Alpine Region (EUSALP), point (32): 

https://ec.europa.eu/regional_policy/sources/cooperate/macro_region_strategy/pdf/eusalp_coucil_conclusions
_27112015.pdf  

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contributions  from  the  MRS  national  coordinators  (NCs)  and  thematic  coordinators  (TCs) 
(“MRS  key  implementers”)  and  experts.  The  three  first  reports  were  followed  by  Council 
Conclusions highlighting key areas of priority for Member States. 

The MRS are implemented in a political context where the European Green Deal (EGD) and 
the  digital  transition  set  new  strategic  orientations  for  the  European  Union.  All  MRS  are 
expected  to  deliver  on  these  topics,  as  well  as  on  the  inclusion  of  civil  society  and  youth, 
notably in the context of the 2022 European Year of Youth.  

This  report  is  published  at  a  time  when  war  is  once  again  ravaging  Europe.  Russia’s 
unprovoked  and  unjustified  military  aggression  against  Ukraine,  the  country  currently 
holding  the  presidency  of  the  EUSDR,  has  shocked  the  entire  world.  The  consequences  of 
this  war  including  –  but  not  limited  to  -  the  inflow  of  refugees  and  energy  security  will 
feature high on the agenda in the years to come. To this should be added the unprecedented 
pandemic  which  is  not  yet  over  and  where  MRS  stakeholders  across  Europe  and  beyond 
struggle to address the severe economic, fiscal and social impacts.   

2.  THEMATIC PRIORITIES DRIVEN BY THE GREEN AND DIGITAL TRANSITION 

The MRS are strongly committed to the European Green Deal (EGD) by providing a cross-
sectoral approach based on multi-level governance and a wide stakeholder involvement. They 
also  facilitate  the  participation  of  Western  Balkans  and  other  accession  countries  in  this 
initiative and also  related initiatives  such as the Green Agenda for the Western Balkans.  In 
particular, the revised EUSBSR (2021) and EUSDR (2020)  action  plans further aligned the 
strategies with the EGD. Key strategic documents related to the EGD, and going even beyond 
the EGD, refer explicitly to the contribution brought by the MRS.  

The  Commission  Communication  on  a  new  approach  for  a  Sustainable  Blue  Economy  of 
20212, also refers specifically to the role of MRS and the embedding process of MRS into the 
national  programming  of  funds.  This  is  particularly  relevant  for  the  MRS  with  a  strong 
maritime dimension. This is also the case for the EU offshore renewable energy strategy3 and 
the REPowerEU Plan4. The EU offshore renewable energy strategy states that, to ensure the 
success  of  large-scale  offshore  renewable  energy  planning  and  deployment,  it  will  be 
necessary  to  boost  regional  cooperation,  through  MRS5.  The  REPowerEU  Plan6  recognises 
the role of the MRS in promoting cooperation in investments in hydrogen infrastructure. 

The  MRS  have  already  triggered  important  achievements  in  strategic  sectors  related  to  the 
EGD  Action  “Clean,  affordable  and  secure  energy”7.  The  Baltic  Sea  region8  developed  a 
professional  network  and  provided  fora  for  expertise  exchange  and  state-of-the-art 
interdisciplinary research on the optimisation of offshore wind energy9. In the Alpine region 
conditions  were  created  for  coordinated  investements  in  the  field  of  hydrogen10  and  the 

2 COM(2021) 240 final. 
3 https://energy.ec.europa.eu/topics/renewable-energy/offshore-renewable-energy_en 
4 https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal/repowereu-affordable-secure-and-
sustainable-energy-europe_en 
5 COM(2020) 741 final - https://eur-lex.europa.eu/legal-
content/EN/TXT/PDF/?uri=CELEX:52020DC0741&from=EN  
6 https://ec.europa.eu/commission/presscorner/detail/en/ip_22_3131  
7 https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal/energy-and-green-deal_en  
8 http://www.baltic-integrid.eu/  
9 http://www.baltic-integrid.eu/  
10 https://www.alpine-region.eu/news/financial-dialogue-networks-workshop-taking-embedding-process-one-
step-further  

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Danube  region11  has  been  provided  with  a  comparative  assessment  of  the  National  Energy 
and Climate Plans12. The MRS have promoted the use of electric vehicles in existing regional 
and local transport systems of the Adriatic and Ionian region13. 

The green and digital transitions are interlinked, and the MRS have played a significant role 
in  the  latter,  supporting  the  implementation  of  the  European  Digital  Strategy.  Digital 
transformation is a cross-cutting objective both in EUSBSR and EUSDR. To connect people 
electronically and promote accessibility to public services from remote areas is a key action 
of EUSALP. Innovation and digital transformation were among the thematic priorities under 
the Slovak presidency of EUSDR in 2021.  

jointly  by 

industry  end-users  and 

As a result, the MRS have developed several innovative projects and approaches in this area. 
EUSBSR has increased eco-efficency in the maritime sector in the Baltic Sea by creating and 
piloting  digital  solutions  developed 
research 
organisations14. EUSDR has been instrumental in cutting red tape for the shipping industry by 
the  introduction  of  harmonised  and  digitalised  control  documents  and  has  fostered 
transnational cooperation among schools in order to strenghten the digital skills of teachers in 
the  Danube  Region15.  EUSAIR  has  supported  the  development  of  a  network  of  sustainable 
tourism  business  and  clusters  in  the  Adriatic-Ionian  region.  The  aim  of  the  network  is  to 
adopt  and  implement  the  EU  Eco-Management  and  Audit  Scheme  (EMAS),  the  European 
Tourism  Indicators  System  for  sustainable  destination  management  (ETIS)  and  other  green 
(sustainable)  Certification  Schemes.  Finally,  the  EUSALP  has  initiated  the  smart  digital 
transformation  of  villages  in  the  Alpine  region16.  This  support  to  rural  communities 
highlights the territorial dimension of the MRS as well as the social angle of digitalisation by 
providing digital services and tools to social groups which do not easily have access to them. 

Examples of projects and processes 

The  Baltic  Sea  is  among  the  most  polluted  waters  in  Europe  and  “Save  the  Sea”  is  a  key 
objective  of  EUSBSR.  The  BEST17(Better  Efficiency  for  industrial  Sewage  Treatment) 
project tackled both  eutrophication  and risks  posed by hazardous substances by  improving 
industrial  sewage  treatment  in  the  Baltic  Sea  Region.  At  Latvijas  Piens  diary  and  cheese 
factory  (Latvia)  a  better  pre-treatment  of  wastewater  improved  the  treatment  results  at  the 
nearby municipal waste water treatment plant. The municipality of Doruchów (Poland) built 
a new treatment line for industrial wastewater that helps preventing eutrophication.  

Universities  and  Research  &  Innovation  Centres  are  essential  actors  of  territorial 
development  in  facilitating  the  implementation  of  sustainable  models  and  to  foster  the 
implementation of the European Green Deal in the Alpine Region. The EUSALP is helping to 
facilitate  the  establishment  of  an  Alpine  Universities  Alliance/Network  by  identifting 
universities from six EUSALP countries18. 

11 NECP_Danube_Region_REKK_2020_final_0215logo.pdf (danube-region.eu)  
12 NECP_Danube_Region_REKK_2020_final_0215logo.pdf (danube-region.eu)  
13 https://enermob.adrioninterreg.eu/ 
14 https://ecoprodigi.eu/ 
15 https://peopleandskills.danube-region.eu/events/online-thematic-conference-school-cooperation-in-the-
danube-region/ 
16 https://www.alpine-space.org/projects/smartvillages/en/home  
17 https://bestbalticproject.eu/ 
18 https://www.alpine-region.eu/news/AG1-workshop-2022-with-26-alpine-universities  

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3.  STRONGER FOCUS ON SOCIAL CHANGE, INCLUDING CONSEQUENCES OF THE WAR IN 

UKRAINE 

The green and digital transition is paired with a social transition. Technological development, 
globalisation and a drive for rationalisation profoundly changes the European labour market 
and  creates  a  demand  for  new  skills,  swift  adaptation  and  increased  resilience  while  many 
traditional professions are losing ground. Demographic change, the pandemic, the inflow of 
refugees and a general trend where European societies become more polarised with pockets 
of poverty and social exclusion are all part of this social transition.  In this process the MRS 
can mobilise stakeholders at all levels to help ensuring that no one is left behind.  

In  the  EUSDR,  the  Social  Entrepreneurship  Education  and  Development  Hub  (SI  PLUS) 
boosts  social  innovation.  The  Baltic  Sea  Labour  Forum  for  Sustainable  Working  Life19 
addresses  demographic  challenge,  and  promotes  active  ageing  and  lifelong  learning  in  the 
EUSBSR.  The  Alpine  Social  Innovation  Strategy  aims  at  defining  a  new  vision  of  social 
innovation  to  increase  the  innovation  capacity  of  EUSALP  regions  by  answering  to  new 
challenges.  The  EUSAIR  has  promoted  investment  in  skills  and  education  for  a  more 
sustainable  blue  economy  in  the  Adriatic-Ionian  Region.  It  identified  vocational  and 
entrepreneurial skills and training as main priorities addressed in a flagship, DES_AIR, under 
the Sustainable Tourism Pillar.  

Refugees from the war in Ukraine seek shelter across Europe. This calls for action in all four 
MRS. EUSBSR and EUSDR are particularly concerned by an additional strain on health and 
social systems already affected by the pandemic. Many MRS stakeholders help refugees and 
support humanitarian aid initiatives. Most recently, these MRS activities have focused on the 
integration of Ukrainian refugees and on establishing safe corridors for freight.    

At the same time, the pandemic has had negative effects on MRS participating countries. On 
the  positive  side,  it  triggered  new  ways  of  working,  boosted  new  initiatives  such  as 
innovation  clusters  helping  SMEs  to  adjust  to  a  new  post-COVID  conditions,  enhanced  a 
shift to a more sustainable tourism and digitalisation of the labour market. 

Examples of projects and processes 

Steering  group  members  of  EUSBSR  policy  area  Secure  –  most  of  them  coming  from  civil 
protection  agencies  across  the  Baltic  region  -  shared  their  experience  in  gathering  and 
distributing  aid  to  Ukraine  and  responded  to  emerging  needs  for  equipment  such  as  fire 
trucks. EUSDR Priority area 10 (Institutional capacity and cooperation) used their networks 
of  civil  society  organisations  to  coordinate  initiatives  to  support  people  in  Ukraine  and 
refugees fleeing the war.  

4.  PROMOTING COHESION AND PLACE-BASED DEVELOPMENT 

All four MRS are well aligned with the overall objective of cohesion policy to contribute to 
strengthening economic, social and territorial cohesion in the European Union and to correct 
imbalances between countries and regions.  

An added value of the  strategies  is  to  bring  a placed-based  approach to  cohesion  policy by 
supporting initiatives emerging at local and regional level that could benefit from cooperation 
at  macro-regional  level.  In  the  four  MRS  a  wide  range  of  processes  and  projects  currently 

19 https://bslf.eu/sustainable-working-life/ 

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bridges local and regional action with European political priorities. This includes initiatives 
to manage risks climate change risks  by i) enabling interaction between local administrations 
and  national  civil  protection  authorities20,  ii)  using  digitalisation  to  overcome  natural 
handicaps and strengthen the resilience of mountain and rural villages21, and iii) developing 
small-scale  territorial  brands  in  the  agri-food  sector22.  The  activities  carried  out  have 
i)  entrepreneurship23, 
promoted  participatory  and  bottom-up  approaches 
ii) transnational clusters and digital innovation hubs24, and iii) equality between women and 
men in innovation and entrepreneurship25. 

to  support 

These  achievements  are  very  promising  but  there  is  still  scope  for  the  MRS  to  further 
increase their role, in particular by reinforcing the link to the local level.  

5.  THE PARTNERSHIP – INVOLVING CIVIL SOCIETY, LOCAL STAKEHOLDERS AND YOUTH  

As set out by the cross-MRS Shadow Report26 coordinated by the Budapest-based European 
House, civil society organisations play a vital role in contributing to better decision-making, 
in particular by bringing local and regional communities closer to the MRS.  

In  both  EUSAIR  and  EUSDR,  civil  society  is  involved  through  platforms  based  on 
participatory planning, community building and empowerment. In EUSAIR, the forum of the 
Adriatic  Ionian  Chambers  of  Commerce  (Forum  AIC)27,  the  Forum  of  Adriatic  and  Ionian 
Cities  (FAIC)28  and  the  Association  of  the  Universities  of  the  Adriatic  and  Ionian  region 
(UNIADRION)29  represent  a  network  of  more  than  120  bodies  and  institutions.  In  the 
EUSDR, civil society platforms include the  Danube Civil Society Forum30 (DCSF) with its 
working group, the Danube Local Actors Platform (D-LAP), DANET - Danube Networkers 
for Europe31 and the European House that coordinated the Shadow Report. 

EUSALP stakeholders have been involved since the beginning and civil society is playing an 
increasing  role  in  implementing  the  strategy.  Several  action  groups  include  representatives 
from  civil  society  organisations  and  civil  society  is  also  involved  in  different  action  group 
events.  Civil  society  organisations  are  also  playing  a  role  in  the  EUSBSR.  They  are 
particularly active in the policy areas of Education, Culture, Health and Tourism.  

Examples of projects and processes 

Held back to back with the EUSDR Annual Forum, the Danube Participation Days32 bring 
together representatives of local, regional and national public administrations, civil society, 
the  EU  and  EUSDR  governance  and  other  interested  stakeholders  of  the  EUSDR. The 
objective  is  to  strengthen  trust  between  public  and  private  stakeholders  and  to  co-create 
sustainable  solutions  for  regional  development  in  the  Danube  Region.  The  2021  edition 

20 https://www.cascade-bsr.eu/toolbox 
21 https://www.alpine-region.eu/publications/smart-villages-using-potential-digitization-alpine-villages 
22 https://www.alpine-region.eu/mapping-territorial-brands 
23 https://www.zsi.at/en/object/project/5803   
24 https://inerrant.italy-albania-montenegro.eu/ 
25 http://www.balticsearegion.org/web/page.aspx?refid=134 
26 https://europeanhouse.hu/the-shadow-report/ 
27 https://www.forumaic.org/?lang=en 
28 https://www.faic.eu/en/home-e/ 
29 https://www.uniadrion.net/ 
30  https://dcsf.danubestrategy.eu/ 
31  http://www.foragenetwork.eu/database/item/702-danet-danube-networkers-for-europe/DANET%20-

%20Danube%20Networkers%20for%20Europe 

32 https://capacitycooperation.danube-region.eu/participation-day/ 

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looked at preconditions for a people-centred digitalisation and why this matter. 

All MRS recognise the importance of bringing youth into their governance and more broadly 
to reach out to young people, empower them and enable them to carry out activities dedicated 
to their interests and concerns. The year 2020 marked the launch of the Youth Manifesto for 
Interreg33. During the past years, all four MRS invited young people to the Annual Fora, to 
actively take part in the discussion with decision-makers. The inclusion of young people was 
stepped up in view of the 2022 European Year of Youth. 

The EUSALP is a frontrunner as regards the inclusion of young people and, in 2021, was the 
first  MRS  to  establish  the  Youth  Council.  It  has  involved  young  people  not  only  in  the 
governance  of  the  strategy,  but  also  in  preparing  and  conducting  activities  which  are 
important for the macro-region. In addition, the annual competition Pitch your project34, the 
EUSALP  summer  camps  programme  and  the  future  participative  online  platform  involve 
young people and existing youth organisations.  

The  EUSDR  decided  to  establish  the  Danube  Youth  Council  and  Youth  Organisations’ 
Network (DYC). It will be included in the governance structure of the EUSDR with a role to 
advise  the  core  decision-making  bodies  on  all  relevant  topics.  In  addition,  the  EUSDR 
supports young people through annual events such as the Young Bled Strategic Forum35.  
In  the  EUSBSR  youth  is  involved  through  the  Baltic  Sea  Youth  Forum  (BSYP)36.  The 
experience  from  the  Baltic  Sea  Youth  Camps  2020  highlights  the  need  to  further 
institutionalise  the  BSYP  and  coordinate  youth  involvement  in  all  EUSBSR  policy  areas. 
Also, EUSAIR puts youth high on its agenda and a youth council is in the process of being 
established.  The  Albanian  EUSAIR  presidency  highlighted  many  youth-related  activities 
during the 2022 Annual Forum held in Tirana - which also is the 2022 European Capital of 
Youth – such as the EUSAIR POPRI youth 2022 contest.  

The  role  of  civil  society  organisations  has  been  growing  over  time.  However,  it  is  still 
necessary to increase the involvement of these organisations in the MRS and more broadly to 
mobilise local stakeholders around common goals. The establishment of an institutionalised 
citizen’s  dialogue  across  macro-regions  could  help  in  this  respect.  Ways  for  the  MRS  to 
address recommendations stemming from the Conference on the Future of Europe could also 
be explored. In addition, the focus on youth has to continue once the European Year of Youth 
is over and that youth councils should be set up in each MRS. Intensified exchanges between 
MRS as well as other regional cooperation networks could help to increase synergies.  

Examples of projects and processes 

The  EUSAIR POPRI  youth competition37 is  a Slovene-led initiative searching  for the best 
entrepreneurial ideas from young people from the Adriatic-Ionian Region. Starting in 2021, 
the  competition  draws  in  some  3500  business-minded  youngsters  eager  to  present  their 
creative and innovative ideas from inception to complete pitch to the judges. The competition 
is open to high school students aged 14-18 and university students from 18-29 years of age. 

33 Manifesto for Young People by Young People to Shape the European Cooperation Policy” in October 2020.  
34 https://eusalp-youth.eu/about-pitch-your-project-en/ 
35 https://bledstrategicforum.org/young-bsf-2021/ 
36 https://bsyp.eu/  
37 https://popri.si/en/ 

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6.  IMPROVING GOVERNANCE AND ADMINISTRATIVE CAPACITY 

MRS is an attractive way to cooperate and new countries continue to show interest to join the 
strategies.  EUSAIR  welcomed  North  Macedonia  on  2  April  2020  and  San  Marino  on  14 
February 2022. This strategy now includes 10 countries of which only four are EU Member 
States38 that makes it particularly focussed on the enlargement.  

Published on 15 February  2021, the revised action plan of the EUSBSR aligns the strategy 
with  the  green  and  digital  transition,  introduces  a  simplified  coordination  and  management 
system  and  establishes  a  Baltic  Sea  Strategy  Point  to  coordinate  capacity  building  and 
knowledge sharing and improve the communication capacity.  

Russia’s  war  in  Ukraine  has  affected  the  MRS  in  several  ways.  Many  of  those  involved  in 
MRS activities now find themselves supporting refugees and  ensuring the continuity of the 
Ukrainian state. The Ukrainian presidency of the EUSDR was temporarily unable to carry out 
its tasks and the remaining members of the Danube Trio presidency – Slovakia and Slovenia 
– agreed to temporarily step in.  

In all four MRS, the political level is represented by the Ministers of Foreign Affairs and, in 
some  cases,  the  ministers  or  authorities  in  charge  of  EU  funds.  For  the  MRS  involving 
accession  countries  and  potential  accession  countries,  the  National  IPA  Coordinators  are 
closely  involved  and  provide  the  political  and  strategic  direction.  In  EUSALP,  regional 
authorities play a significant role in the political/strategic discussions at all governance levels. 
The EUSAIR Governing Board includes two NCs of each country, one from the Ministry of 
Foreign Affairs and one from the Ministry in charge of EU Funds.   

The role of the rotating  presidency is  growing in all strategies. This  concerns both  EU and 
non-EU  countries,  as  all  the  three  MRS  with  non-EU  countries  (Danube,  Adriatic-Ionian, 
Alpine)  had  or  will  have  a  presidency  held  by  a  non-EU  country.  Fixed  rotating  orders  of 
presidencies 
presidencies 
(predecessor/incumbent/successor)  is  now  in  place  in  all  four  MRS.  Its  role  has  increased, 
notably  through  the  establishment  of  a  “4  Trio  Presidencies  group”,  which  meets  regularly 
and always back-to-back with the yearly EU MRS Week.  

consecutive 

as  well 

format 

trio 

of 

as 

a 

To promote an exchange of experience and transfer of best practice, the MRS presidencies, 
together  with  the  Commission  and  with  the  support  of  the  Interact  programme39,  have 
continued the development of cooperation networks, training courses, methods, and tools to 
embed  the  MRS  into  2021-2027  EU  funding  programmes.  Interact,  with  the  support  of  the 
Commission, continued to promote the macro-regional concept and strengthen the capacity of 
the  implementing  bodies.  For  those  MRS  with  a  maritime  component,  dialogue  with  sea  -
basin strategies is essential. 

The MRS Annual  Fora  are important  political  gatherings with  high political  representation. 
The EUSBSR 2021 Annual Forum was opened by Ursula von der Leyen, the President of the 
European  Commission,  four  Prime  Ministers  and  the  Secretary-General  of  the  OECD. 
However,  in  order  to  reap  the  full  benefit,  annual  fora  should  be  combined  with  regular 
ministerial  meetings  -  at  MRS  or  thematic  level  -  and  regular  meetings  between 
parliamentarians at all levels. Moreover and although progress has been recorded, to ensure 
continuity, it should be secured that issues brought up by one MRS presidency are followed 
up by the next presidency. 

38 EUSAIR covers ten countries of which four EU Member States (Croatia, Greece, Italy, Slovenia) and six non-
EU countries (Albania, Bosnia and Herzegovina, Montenegro, North Macedonia, San Marino, Serbia). 
39 https://www.interact-eu.net/ 

7 

 
 
                                                           
 
The role of the thematic/priority/policy steering or action groups  who are the drivers of the 
day-to-day  implementation  of  MRS  action  plans  has  grown  noticeably.  Further  work  is 
nevertheless  required  to  empower  these  key  MRS  implementers  with  clear  mandates, 
effective decision-making capacity and a clear vision on how their fields of work contribute 
to  the  broader  policy  context,  while  ensuring  a  stable  environment  with  access  to  the 
resources, technical capacity and skills needed. A balance has to be found between frequent, 
targeted online meetings for coordination and information exchange and in-person meetings 
that are effective in enabling direct exchange and joint development of new ideas. 

Progress is reported on the technical support structures that facilitate the implementation of 
the MRS. The EUSDR Danube Strategy Point (DSP) set up in 2018 is a success and the key 
element  of the well-functioning EUSDR  governance system. The EUSAIR Facility Point is 
an  essential  element  for  the  functioning  of  the  EUSAIR  governance.  In  both  EUSALP  and 
EUSBSR,  new  technical  support  structures  are  being  set  up  in  2022.  It  will  be  crucial  that 
these  technical  support  structures,  soon  operational  in  all  MRS,  are  empowered  with 
sufficient resources so that the work can be properly carried out and continuity ensured.  

7.  BETTER ACCESS TO FUNDING AND EMBEDDING 

The  four  Interreg  transnational  programmes  covering  the  MRS  have  played  a  positive 
catalytic role in supporting the strategies and will continue to do so during the programming 
period  2021-2027,  also  thanks  to  the  provisions  included  in  the  new  Interreg  regulation40. 
However,  these  Interreg  programmes  have  neither  the  resources  (very  limited  budgets)  nor 
the thematic coverage to be able to address all MRS objectives and priorities.  

During  the  reporting  period,  the  process  to  align  2021-2027  national/regional  EU  funding 
programmes with relevant MRS priorities (embedding) was stepped up in all four MRS. An 
EUSDR Managing Authority Network for the European Social Fund (ESF) exists since 2015. 
In 2021, new networks for the managing authorities of the European Regional Development 
Fund  (ERDF)/Cohesion  Fund  (CF)  and  the  Instrument  for  Pre-Accession  Assistance 
(IPA)/the  Neighbourhood,  Development  and  International  Cooperation  Instrument  (NDICI) 
programming authorities' network were set up. Based on the revised EUSDR action plan, five 
areas  were  established  on  which  thematic  workshops  are  held  during  2022.  Guidance 
documents were prepared, notably by the Croat, Slovak and Ukrainian Presidencies, together 
with the EUSDR Embedding tool41 prepared by the Danube Strategy Point.   

In  2021,  three  EUSALP  financial  dialogue  networks  (on  energy  transition  and  specifically 
hydrogen, sustainable mobility and digital technology) were set up to facilitate the connection 
between  EUSALP  activities  and  available  funding.  The  work  on  embedding  within  the 
Action Labs for the EUSAIR European Territorial Cooperation programmes is successful. It 
should  be  extended  to  mainstream  cohesion  policy  and  IPA  III  programmes.  The  outcome 
should  be  the  establishment  of  a  network  of  Managing  Authorities  and  National  IPA 
Coordinators that would cooperate on the definition of terms or references, preparation of call 
for proposals, information to beneficiaries and on supporting the implementation of joint or 
parallel  projects  contributing  to  pre-defined  EUSAIR  flagships.  In  the  EUSBSR,  managing 
authority  networks  already  exist  for  ESF,  ERDF,  European  Agriculture  Fund  for  Rural 
the  European  Maritime,  Fisheries  and  Aquaculture 
Development 

(EAFRD)  and 

40 Article 15(3) of Regulation (EU) 2021/1059: “Where an Interreg B programme supports a macro-regional 
strategy or a sea-basin strategy, at least 80 % of the ERDF contribution and, where applicable, part of the 
external financing instruments of the Union allocations under priorities other than for technical assistance shall 
contribute to the objectives of that strategy.” 
41 https://danube-region.eu/projects-and-funding/embedding-2021-2027/ 

8 

 
 
                                                           
 
Fund (EMFAF). A more systemic approach to the embedding is  expected in both EUSALP 
and EUSBSR once the new technical support structures become fully operational.  

As  the  MRS  do  not  have  their  own  resources,  similarly  to  sea-basin  strategies,  their 
implementation  depends  on  synergies  with  other  instruments  and  on  bringing  together 
funding from different  sources. That  is  why the  success  of the MRS is  ultimately linked to 
their  capacity  to  ensure  that  EU,  national,  regional,  and  other  public  and  private  funds  are 
aligned with the priorities of the strategy and finance the MRS activities/support the MRS. 

A  big  challenge  for  EUSAIR  and  EUSDR  is  to  combine  several  sources  of  EU  funding 
(Cohesion Policy Funds, IPA III, NDICI and IPARD42 III) which work according to different 
regulations,  methodologies,  timing,  and  with  different  structures.  MRS  key  implementers 
should increase efforts to make these different worlds communicate more with each other and 
develop more synergies for the implementation of macro-regional actions and projects. 

For  the  future  it  is  important  that  political  commitments  made  at  ministerial  meetings  in 
relation to the embedding are turned into action. In addition, it would be beneficial to involve 
businesses and SMEs to identify cases and potential (clusters, smart specialisation platforms 
etc.)  for  the  four  macro-regions.  For  example,  in  the  field  of  blue  economy,  smart 
specialization  strategies  are  a  key  tool  achieving  innovation,  towards  the  axes  of 
decarbonisation and digitalisation. Exchange of best practice between and across MRS could 
help  in  this  respect.  The  role  of  the  “4  Trio  Presidencies  group”  and  Interact  should  be 
explored to facilitate the process. Networks of programme (managing) authorities should be 
set  up  in  all  MRS.  These  networks  have  a  significant  role  to  play  and  should  operate 
throughout the 2021-2027 period and beyond.  

Following the call by the Council in its conclusions on the third report on the Implementation 
of EU macro-regional strategies, the Commission organised a series of workshops dedicated 
the  directly  managed  EU  programmes  during  the  2021  EU  MRS  Week.  In  addition,  MRS 
contact points were established in all Commission DGs. As a result of the dialogue within the 
Commission, references to MRS are included in some of the work programmes of the directly 
managed programmes and there are cases of calls specifically targeting MRS. The 2021-2024 
work  programme  for  the  LIFE  programme  encourages  the  use  of  the  MRS  for  Strategic 
Integrated Projects at transnational scale and for the coordinated implementation of Strategic 
Nature  Projects.  In  2021  the  LIFE  sub-programme  “Climate  Change  Mitigation  and 
Adaptation” launched a first call for projects targeting the MRS. Two Horizon Europe work 
programmes  2021-2022  (“Widening  participation  and  strengthening  the  European  Research 
Area”  and  “Food,  Bioeconomy,  Natural  Resources,  Agriculture  and  Environment”)  refer  to 
the MRS and to macro-regional thematic networks.  

To  increase  further  uptake,  MRS  NCs  and  TCs  should  encourage  project  promoters  (e.g., 
macro-regional actors) to participate in calls for projects published by the directly managed 
EU  instruments,  including  new  funds  such  as  the  new  direct  funds  of  the  CEF  Digital 
programme.  The  Technical  Support  Instrument43  could  support  MRS,  to  the  extent  they 
involve the design and implementation of reforms. The support is provided to Member States 
upon request across a wide range of policy areas, including cohesion and the green and digital 
transitions  and  can  be  delivered  as  a  multi-country  or  multi-regional  project.  Finally,  the 

42 The instrument for pre-accession assistance for rural development (IPARD). 
43 https://ec.europa.eu/info/funding-tenders/find-funding/eu-funding-programmes/technical-support-
instrument/technical-support-instrument-
tsi_en#:~:text=The%20Technical%20Support%20Instrument%20(TSI,co%2Dfinancing%20from%20Member%
20States. 

9 

 
 
                                                           
 
MRS  should  also  contribute  to  implementation  of  Horizon  Europe  EU  Missions44, 
particularly those with a strong regional dimension, such as the EU Mission for restoring our 
Ocean and Waters. 

8.  MONITORING AND EVALUATION – WORK IN PROGRESS 

The  MRS  are  delivering  a  substantial  number  of  results,  ranging  from  internal  capacity 
effects  and  coordination/cooperation  processes  among  countries  and  regions,  to  concrete 
transnational  projects/activities being implemented or facilitated. However, in  practice, it is 
challenging to measure and report on these achievements. 

This is why initiatives to develop monitoring systems are on-going in all MRS. The overall 
macro-regional  territorial  monitoring  tool  developed  by  the  ESPON  (European  Spatial 
Planning Observation Network) to observe development trends and patterns in all four MRS 
should be explored by all these strategies when assessing options to improve or re-focus their 
objectives  and  policies.  Additionally,  the  ESPON  Territorial  Scenarios  for  the  Danube  and 
Adriatic Ionian Macro-regions provides valuable input.  

A monitoring matrix was developed by and for EUSALP in 2021 with targets and indicators 
defined.  The  revised  2021  action  plan  for  EUSBSR  sets  out  its  monitoring  and  evaluation 
framework,  which  the  National  Coordinators  Group  has  endorsed  and  published  on  the 
EUSBSR website. In the EUSDR, a new monitoring system was introduced in 2022.  

Thus,  although  achievements  were  recorded  in  the  fields  of  monitoring  and  evaluation, 
activities  need  to  be  stepped  up.  This  is  crucial  to  get  better  and  more  robust  data  on  the 
impact  of  the  MRS,  including  in  terms  of  funding  mobilised  for  the  implementation  of  the 
strategies.  Comprehensive  monitoring  mechanisms  would  also  be  helpful  in  maintaining 
political  support  and  would  help  key  implementers  to  better  understand  each  strategy’s 
weaknesses and strengths. 

9.  BETTER COMMUNICATING THE MACRO-REGIONAL STRATEGIES 

Overall,  communication  activities  of  the  four  MRS  focused  on  messages  of  solidarity  and 
cooperation  in  times  of  war  and  pandemic.  In  2020  a  common  narrative  was  developed  by 
MRS  communication  and  policy  officers  together  with  the  support  of  Interact.  It  was  the 
result of a discussion about mission, vision, and key messages common to the four strategies 
to explain MRS’ raison d’être to a large audience. The narrative turned into a video45 which 
explains the challenges in Europe, and the role of the MRS in overcoming them.  

All  strategies  adapted  their  communication  means,  putting  emphasis  on  digital  formats  and 
social media. EUSALP  put  in  place a series of  YouTube videos  about  solidarity within the 
Alpine  region.  The  work  done  to  deliver  mission,  vision  and  key  messages  with  dedicated 
financial  means  for  each  strategy  paid  off,  with  noticeable  results  on  communication 
activities. A more targeted audience has helped to set out key messages and these have been 
turned into concrete digital campaigns.  

The EU MRS Week usually organised in the beginning of each year has become the biggest 
Brussels-based  event  dedicated  to  connecting  MRS  stakeholders  at  all  levels  with 
representatives  of  EU  institutions,  research  and  academia,  civil  society  organisations  and 
citizens. The 2021 MRS Week included sessions on support to the COVID-19 recovery, the 
embedding  process  and  EU  funding  programmes  directly  managed  by  the  European 

44 https://research-and-innovation.ec.europa.eu/funding/funding-opportunities/funding-programmes-and-open-
calls/horizon-europe/eu-missions-horizon-europe_en   
45 (193) EU Macro Regional Strategies, cooperation solutions in time of transition - YouTube 

10 

 
 
                                                           
Commission.  In  2022  the  MRS  Week  had  a  focus  on  youth,  the  European  Green  Deal  and 
social change. The opening included an expression of solidarity with Ukraine.  

The Mediterranean Coast and Macro-Regional Strategies Week46 is a Slovenian-led initiative 
which brings together key implementers from the four MRS. It has become a successful tool 
to reach both national media and the wider public.  

Looking  ahead,  the  work  to  communicate  the  MRS  to  stakeholders  and  the  wider  public 
should  be  continued  and  expanded  within  and  across  MRS,  notably  by  more  targeted 
communication, exploiting synergies, improving coordination and harmonisation.  

10. THE WAY FORWARD AND CONCLUSIONS 

The MRS contribution to the green, digital and social transitions is important. All MRS are 
accelerating their delivery on these topics, and if their ability to deliver is strengthened then 
the  MRS  will  become  more  politically  relevant.  Activities  that  help  addressing  current 
challenges such as the war in Ukraine, the climate crisis and the recovery from the pandemic 
further reinforces the relevance of the strategies.  

However, the MRS should also increase their efforts to support new activities in fields where 
cooperation  at  macro-regional  level  provides  an  added  value,  also  exploring  synergies  with 
sea-basin strategies, and where the MRS could open for solutions that are difficult to achieve 
in more formalised contexts, such as energy. The war in Ukraine has put energy security on 
top  of  the  political  agenda  in  the  European  Union,  notably  with  the  REPowerEU  Plan47.  It 
aims  to  diversify  gas  imports  and  increase  energy  efficiency  and  the  use  of  renewables  to 
achieve  independence  from  Russian  fossil  fuels  by  2030.  The  REPowerEU  SWD48 
specifically refers to the role of MRS as cooperation frameworks to promote investments in 
hydrogen infrastructure in  a cross-border, interregional and transnational  context.  These are 
areas where the MRS will need to turn their attention in the years to come. 

The fact that Ukraine took over the presidency of the EUSDR in 2021 triggers new activities 
and  contributes  to  the  deepening  of  cooperation  in  the  Danube  region.  In  the  enlargement 
process  the  MRS  are  well  suited  to  help  in  the  adoption  of  EU  law  while  building 
administrative capacity on various EU policies, including cohesion policy and the principle of 
shared management. In the Western Balkans, Bosnia and Herzegovina took over the EUSAIR 
presidency  in  2022.  A  task  for  the  EUSDR  will  be  to  support  the  ambitions  for  EU 
membership of Ukraine and Moldova.  

To  conclude,  MRS  are  powerful  tools  to  support  economic,  social  and  territorial 
development,  build  macro-regional  identity  and  aspirations  and  in  building  trust  and 
confidence among neighbouring countries. The strategies are flexible tools to respond to new 
and emerging challenges. MRS also tailor key EU initiatives to the reality and specificities of 
a functional area and can help bringing the European Union closer to the citizens and young 
people. The efforts to embed the priorities of the MRS in relevant EU funding programmes 
2021-2027 are progressing well, and they are showing encouraging initial results. However, 
ensuring implementation of these priorities will require continuous attention up to 2027.  

46 https://www.adriatic-ionian.eu/2022/06/10/save-the-date-for-the-mediterranean-coast-and-macro-regional-
strategies-week-2022/ 
47 https://ec.europa.eu/commission/presscorner/detail/en/IP_22_3131 
48 SWD(2022) 230 final, 18.5.2022. 

11