JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on Military Mobility
Date: 2025-11-19
Institutions: Directorate-General for Defence Industry and Space, European Commission
Subjects: EU action, EU-NATO cooperation, European defence policy, European security, defence industry, dual-use technology, military cooperation, military equipment, trans-European network, transport infrastructure

EN 

  EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 19.11.2025  JOIN(2025) 846 final  JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on Military Mobility  
 
 
Joint Communication on Military Mobility 

Military Mobility as a crucial enabler of defence readiness and enhanced deterrence  

In the rapidly evolving global security context, military mobility is a crucial enabler of the 
defence posture and capabilities that Europe urgently needs to credibly deter its adversaries 
and  to  respond  to  any  crisis.  It  contributes  to  security  and  defence  and  to  the  Union’s 
preparedness. It is also a cornerstone of EU-NATO cooperation and key to the EU’s support to 
Ukraine. 

“World peace cannot be safeguarded without the making of creative efforts proportionate to 
the dangers which threaten it”, as Schuman declared in 1950. This is today more valid than 
ever before. To ensure peace through deterrence, EU Member States must be able to move their 
armed forces and military equipment seamlessly, at speed and at scale across and beyond the 
EU. This requires a dual-use transport system that is able to support military mobility while 
minimising disruptions and mitigating the impact of such transport on civilian transport and 
hence for the economy and society as a whole.  

While  important  progress  has  been  made,  significant  barriers  persist  to  effective  military 
mobility  in  the  EU  .  National  rules  are  often  divergent,  fragmented  and  non-harmonised  – 
including when civilian operators are used for military transport services - and not fit for the 
current security context we live in. We need to better coordinate and speed up military transport 
to eliminate these issues. Moreover, the EU’s transport infrastructure is insufficiently adapted 
to dual-use needs. The system remains vulnerable to disruptions and ever more frequent cyber 
and  hybrid  attacks.  In  addition,  transport  capabilities  such  as  flatbed  wagons  and  dual-use 
ferries - vital for military movements - are scarce. These issues expose critical vulnerabilities 
for  the  Union’s  transport  network  and  thereby  undermine  the  EU's  security  and  defence 
capacity as well as the capacity of militaries to support civil protection. To this end, Europe 
must clearly change gear and remove all remaining barriers.  

The  Joint  White  Paper  for  European  Defence  -  Readiness  2030  and  its  translation  into  the 
Defence Readiness Roadmap identify military mobility as a priority capability area for a robust 
European defence. While Member States remain free to decide whether to allow foreign armed 
forces to cross their territory as part of their national security and defence, the EU must have a 
framework  for  military  mobility  that  balances  military  and  civilian  needs.  To  this  end,  the 
Commission and the High Representative (HR) propose a comprehensive set of measures to 
facilitate seamless military mobility with a 360-degree approach, in close coordination with 
NATO. It aims to set up an EU-wide Military Mobility Area by the end of 2027 as a first 
step towards progressively achieving a ‘Military Schengen’ in regulatory, infrastructure and 
capabilities dimensions. 

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Progress to date 

The upheaval of the European security architecture following Russia’s invasion of Crimea, and 
subsequently its military aggression against Ukraine, mobilised the EU, Member States' and 
partners' responses. Since 2017, the EU has pursued a dedicated agenda to strengthen military 
mobility. A series of measures to tackle physical, procedural and regulatory barriers for military 
movements were identified in two Action Plans on Military Mobility in 2018 and 2022. In 
the 2024 Military Mobility Pledge, Member States committed to address the remaining gaps 
in military mobility. 

The  revised  Regulation  for  the  development  of  the  trans-European  transport  network 
(TEN-T)  of  2024  commits  Member  States  to  integrate  military  mobility  into  European 
transport policy, setting the trans-European transport network on the path of becoming largely 
a dual-use network. To guide and prioritise future dual-use infrastructure investments on this 
network, four priority multi-modal military mobility corridors for short notice and large-
scale  military  movements,  together  with  shared  military  infrastructure  requirements,  were 
adopted  by  the  Council  in  March  2025.  These  Corridors  will  allow  for  strengthened 
cooperation and coherent investment planning between Member States across borders.  

Achieving  a  trans-European  transport  network  that  meets  both  civilian  and  military  needs 
requires high investments. Under the Multiannual Financial Framework (MFF) 2021-2027, 
a  budget  of  EUR  1.69  billion  -  was  dedicated  to  co-fund  dual-use  transport  infrastructure 
through  the  Connecting  Europe  Facility  (CEF),  with  95  dual-use  transport  infrastructure 
projects  selected  across  21  Member  States.  As  the  demand  for  EU  funding  significantly 
exceeded the available resources and all calls were heavily oversubscribed1, the Commission 
proposed in July 2025 a tenfold increase of the military mobility budget under the CEF within 
the next MFF as of 2028. In addition, until the end of the current MFF period, the reallocation 
of Cohesion policy funds to defence-related investments – with financial incentives if requested 
by end 2025 - and the SAFE instrument can be used by Member States to finance dual-use and 
military mobility infrastructure projects. 

Next  to  infrastructure,  transport  and  logistic  capabilities  are  critical  enablers  of  military 
mobility. Improving awareness at EU level on available transport assets, optimal use of these 
capabilities and closing capability gaps across the Union is key. To enhance these enablers, the 
EU has supported projects on digital information exchange systems, outsized cargo airlift and 
studies for future air systems through the European Defence Fund (EDF). 

While Member States have made significant efforts to achieve alignment, diverging rules result 
in delays impacting heavily on military mobility. The European Defence Agency (EDA) and 
contributing  Member  States  have  developed  Technical  Arrangements  for  cross-border 

1 The 3rd and final call of 807 MEUR for dual-use transport infrastructure projects had an oversubscription rate 
of 4.7: 22 Member States applied with 112 projects (for a total requested EU co-funding of EUR 3.7 billion) 

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movement permission procedures, with the aim of harmonising and simplifying these rules. 
However, the implementation of Technical Arrangements is suboptimal, and changes to the 
EU  framework  are  necessary  to  achieve  harmonisation.  Digitalisation  is  needed  to  increase 
speed and efficiency, and to minimise operational risks.  

Overall and despite the progress made in these past years, challenges remain. This is also the 
conclusion of the European Court of Auditors Special Report on EU military mobility, 
which outlines that the EU’s approach to military mobility has achieved mixed results, and that 
it remains fragmented and insufficiently binding.  

The  White  Paper  for  European  Defence  -  Readiness  2030  calls  for  enhanced  dual-use 
connectivity  with  our  neighbours,  in  particular  Ukraine  and  Moldova.  Four  of  the  nine 
European Transport Corridors of the TEN-T already extend into Ukraine and one into Moldova, 
with a first set of important investments in dual-use infrastructure ongoing. For instance, with 
the help of co-funding from the CEF and the European Investment Bank, a first 22 km long 
railway stretch connecting Western Ukraine with Slovakia and the rest of Central Europe in 
European  nominal  standard  railway  track  gauge  opened  in  September  2025.  In  parallel, 
preparatory  works  are  ongoing  to  deploy  European  nominal  standard  track  gauge  on  the 
European Transport Corridors connecting Moldova and Ukraine to EU Member States. 

Streamlining and adapting rules and procedures for swifter military movements   

Europe must take decisive action. While progress has been made, the EU remains shackled by 
fragmented approaches that undermine our ability in moving military equipment and personnel 
across Europe. The current state of fragmented and inconsistent national regulations and 
procedures, and bureaucratic hurdles creates critical bottlenecks and delays.  

Cross-border  military  transport  remains  constrained,  in  particular  as  EU  rules  are  not 
applied to military transport or are not applied  coherently, national regulations diverge, and 
military transport is not given sufficient priority. Civilian operators contracted by the military 
must  comply  with  civilian  rules,  which  are  not  adapted  for  military  transport  needs. 
Additionally, military transport operations have far more demanding requirements than civilian 
ones. Military forces also share infrastructure and vehicles with civilian transport operations 
which  creates  competing  needs.  This  leads  to  delays,  operational  inefficiencies,  critical 
bottlenecks and capacity constraints.  

Diplomatic  clearance  procedures  are  often  complex  and  paper-based  with  long  approval 
timelines.  For  example,  the  time  required  to  obtain  cross-border  permissions  for  military 
transport varies significantly, with some Member States requiring 45 days advance notice, far 
exceeding  the three  working  days to  grant  permissions  committed  to  in  the  2024  Military 
Mobility Pledge. In addition, the application of customs formalities can create delays unless 
the appropriate customs simplifications are utilised, such as the EU Form 302 or NATO Form 
302. 

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Moreover,  military  transport  often  involves  dangerous  goods  and  abnormal  loads,  which 
require  adequate  planning  to  ensure  safe  operation  (for  example  for  transport  of  heavy 
equipment  such  as  tanks,  and  of  ammunition).  However,  the  EU  harmonised  rules  for 
dangerous goods  do not  apply  to  military transport, while processes for abnormal  loads are 
slow and disparate. Thus working out safe routes and arrangements is done on an ad hoc basis 
between individual Member States, local authorities and infrastructure managers, sometimes 
taking many weeks. 

Responsibility  for  the  processes  related  to  military  mobility  is  fragmented  within  Member 
States, and inconsistent between them. The Permanent Structured Cooperation (PESCO) 
Military Mobility project, comprising 30 participating countries, has worked to address this, 
including by creating a network of military mobility Points of Contact at national level.  

Addressing these challenges exceeds individual Member State capacities. National efforts and 
non-binding measures fall short of the urgency and clarity demanded by a volatile geopolitical 
landscape.  Substantial  progress  is  needed  to  accelerate  the  pace  and  scale  of  EU  military 
mobility. 

To address these systemic issues, the EU needs a unified approach integrated into the broader 
transport  acquis,  tailored  to  the  unique  demands  of  military  operations.  To  this  end,  the 
Commission, and the HR, propose a Military Mobility Package. 

The Package will encompass a single set of rules for cross-border military transport permission 
procedures,  including  diplomatic  clearances  and  the  transport  of  dangerous  goods  and 
oversized/overweight military cargo, with shortened lead times and standardised templates for 
requests and notifications. Currently, permissions between Member States need to be renewed 
annually, while there is a need for more predictability and stability. This new set of rules will 
ensure that permissions are valid until revoked and includes a possibility to expand their scope. 
The  enhanced  rules  and  procedures  for  cross  border  permissions  are  also  aimed  to  benefit 
military movements of non-EU NATO allies, when relevant for our security, and ensuring that 
the security and defence interests of the Union and its Member States are not contravened. 

The  armed  forces  need  harmonised  rules  and  timelines  for  the  technical  and  operation 
arrangements for transport – whether carried out with their own fleet or by civilian operators - 
providing  clarity on the  routes  they  can take,  especially  for  dangerous goods and abnormal 
cargo, and at the same time flexibility to adjust military transport to the precise nature of any 
crisis. The Commission and the HR encourage Member States to work together to plan routes, 
ensuring alignment with the work of the Network of Logistic Hubs in Europe and Support 
to Operations (NetLogHubs) PESCO project which aims at improving infrastructure planning 
and  coordination.  The  harmonised  rules  proposed  by  the  Commission  will  support  such 
enhanced and advanced coordination among Member States and relevant actors. 

To  simplify  military  transport  conducted  by  civilian  operators  (“white  fleet”)  in  line  with 
military transport conducted by military forces (“green fleet”), the Commission proposes under 

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the  Regulation  within  this  Military  Mobility  Package  to  exempt  military  transport  from 
certain civilian rules such as holiday traffic bans, and to include the possibility for Member 
States to suspend cabotage rules in certain situations.  

Divergent  national  implementation  of  EU  customs  rules  and  an  insufficient  use  of 
appropriate customs declaration forms (i.e. EU Form 302 or NATO Form 302) by the operators 
create avoidable delays in the transport of goods. The EU and NATO Forms 302 as applicable 
should be used by default by operators (unless waived by military authorities in favour of the 
regular  customs  formalities),  to  streamline  cross-border  transport  and  prioritise  customs 
controls  when  applicable.  To  increase  legal  certainty  regarding  the  use  and  handling  of  the 
Forms 302, the implementation of the new Union Customs Code could further specify data 
requirements and relevant customs formalities. To enhance the impact of streamlined customs 
formalities,  relevant  provisions  need  to  be  paired  with  soft  measures,  such  as  giving  clear 
guidance and delivering training for civilian operators, customs and military authorities. 

Digitalisation of military mobility processes will help to ensure swift procedures and better 
coordination.  The  creation  of  a  single  digital  tool  to  handle  cross-border  military  mobility 
processes should be envisaged. This tool would manage diplomatic clearances, track transport 
arrangements and include a digitalised EU Form 302, and facilitate the exchange and storage 
of  information.  This  is  a  long-term  significant  project  that  needs  to  be  built  progressively, 
incorporating  customs  and  military  aspects,  and  would  aim  to  streamline  processes,  with 
modalities and technical specifications to be discussed with Member States. The Commission 
has supported a project on digitalisation of military mobility processes under the EDF which 
could possibly serve as one of the building blocks. The EDA has also in parallel advanced work 
on  digitalisation  of  customs  requirements  for  military  transport.  Under  the  next  MFF,  the 
Commission  has  proposed  a  specific  component  on  military  mobility  within  the  European 
Competitiveness  Fund  (ECF)  proposal￼  including  activities  related  to  the  digitalisation  of 
military mobility processes. 

The rules proposed in the Regulation will reduce delays and operational risks, aligning with 
the  EU’s  three-day  processing  commitment  of  cross-border  military  transport  requests  and 
enhancing  defence  readiness  by  enabling  seamless  cross-border  movements  of  military 
personnel and equipment. It will increase consistency and minimise bureaucratic hurdles 
that  have  long  hindered  military  mobility.  This  will  bring  the  EU  closer  to  a  ‘Military 
Schengen’. 

The Commission will review the Rail Service Facilities Regulation in 2026 to ensure it meets 
military  transport  needs  while  including  the  input  from  EU  Military  Staff.  Similarly,  the 
Commission will revise the Air Services Regulation in 2026 to allow greater flexibility in the 
application of exceptional air traffic restrictions to facilitate military transport in peacetime. In 
addition,  the  Commission,  in  cooperation  with  the  EDA,  Eurocontrol  acting  as  network 
manager  and  the  European  Union  Aviation  Safety  Agency  (EASA),  will  improve  civilian-
military  coordination  to  facilitate  cross-border  military  flights  by  promoting  a  network  of 
suitable dual-use airports, predefined cross-border connectivity points, and a digital single 

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window  for  authorisation.  This  will  be  supported  by  an  evaluation  of  the  Flexible  Use  of 
Airspace Regulation in 2026.  

Stepping  up  our  defence  through  an  emergency  framework  for  cross-border  military 
transport 

In crises, when time is crucial to any response, Europe cannot afford to react slowly. In such 
situations we cannot rely on ad-hoc coordination and national goodwill. We must have a clear 
plan  and  a  fast  lane  prepared  for  our  military  forces.  Without  it,  our  deterrence  remains 
theoretical. 

The Commission therefore proposes as part of the Regulation an emergency framework for 
cross-border  military  transport,  the  European  Military  Mobility  Enhanced  Response 
System (EMERS), which will activate an enhanced and coordinated response framework for 
cross-border military transport in case of emergencies where standard procedures fall short. It 
will  enable  temporary,  extraordinary  measures  to  guarantee  enhanced  cross  border  military 
transport and priority access for the armed forces to infrastructure, transport assets, and 
essential  services.  It  will  include  unified  regulatory  procedures  and  rules,  targeted 
derogations  and  exemptions,  enhanced  preparedness  and  solidarity  measures,  and 
increased infrastructure resilience.  

EMERS will be the Union’s emergency framework for military transport, strengthening its 
capacity to respond swiftly and effectively to urgent situations and to minimise disruptions 
of civilian traffic, contributing to defence readiness where an existing or expected increase in 
volume,  frequency  or  speed  of  military  transport  in  the  Union  cannot  be  met  under  normal 
Union transport rules or due to the capacity of the Union transport network. It may be activated 
by the Council within 48h, acting on the proposal of the Commission on its own initiative or 
upon a request initiated by at least one Member State. Where possible, the Commission will 
consult the Military Mobility Transport Group proposed in the Regulation.  

In this process, the Commission in cooperation with the HR will use all expertise available, 
and engage with NATO through agreed formats, informing it of EMERS’ activation, extension, 
or termination. This collaborative approach ensures consistency and reinforces interoperability 
between EU and NATO response mechanisms, further supporting EU defence readiness. 

When EMERS is activated, special rules will apply. Cross-border military transport will only 
require a notification with a reduced advance notice of military movement, bypassing standard 
procedures, with the exception of customs formalities and provisions. Even in an emergency, 
military transport operations need to be planned to ensure oversized loads fit the infrastructure, 
dangerous goods are safely transported, and facilities are available to support road transport en 
route. These arrangements must be simplified and finalised very rapidly, using predetermined 
routes  where  possible.  EU-wide  priority  access  to  transport  networks,  infrastructure  and 
related services will be granted to all military transport operations, whether carried out by the 
military  or  by  its  (civilian)  contractors.  Moreover,  derogations  related  to  cabotage  rules, 

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driving time and rest periods for military transport carried out by civilian operators will be 
provided  for.  Military  transport  will  be  exempt  from  traffic  restrictions  based  on  the 
environmental performance of vehicles or based on air quality and noise control put in place at 
airports and ports. Rail vehicles may operate more flexibly, beyond their authorised area of use, 
and enhanced protective measures will safeguard strategic dual-use infrastructure.  

The  proposed  new  Union  Customs  Code  could  also  introduce  faster  and  specific  customs 
procedures for crisis situations at the customs frontier of the Union. To support the application 
of  these  customs  provisions  to  military  transport  operations,  the  European  Union  Customs 
Authority, in consultation with the Commission, will develop specific protocols and procedures 
for expediting customs formalities when the EMERS is activated. Its activation will also trigger 
the  customs  crisis  management  mechanism  under  the  new  Union  Customs  Code,  ensuring 
streamlined procedures in urgent situations. Also the rapid movement of military food supplies 
from  non-EU  countries  is  important  for  the  sustainment  of  troops  and  EMERS  rules  will 
support this.  

Changing gear on infrastructure: making transport infrastructure fit for a dual use  

Significant investments at all levels are needed to upgrade Europe’s transport infrastructure to 
dual-use standards for civilian and military purposes. As military convoys are often large in 
scale and  composed of oversized  and overweight vehicles,  our infrastructure  needs to be 
adapted to such abnormal military transport, in particular by reinforcing and enlarging rail 
and road bridges and tunnels and by significantly increasing transport capacity, notably in ports 
and  airports.  The  migration  to  European  nominal  standard  track  gauge  and  other  technical 
enhancements to allow smooth transportation by rail to all parts of Europe will equally be key, 
as  will  be  the  enhancement  of  the  resilience  of  our  communication  and  energy  supply 
infrastructure.  

As a matter of priority, the four priority military mobility corridors should be upgraded to 
the infrastructure standards set by the Council’s Military Requirements to create a resilient and 
operational military mobility network. Spending must be strategic, focusing on major choke 
points first and based on an assessment of the corridors’ functionality.  

To this end, 500 ‘hotspot’ projects, with currently estimated investment needs of around EUR 
100 billion for urgent intervention on the four corridors, have already been identified together 
with Member States. These targeted and particularly short-term investments will lead to quick 
improvements of the corridors and must be implemented with priority to be operational. By 
setting up and steering regular corridor meetings, the Commission, supported by the HR and 
in consultation with NATO will work with Member States - through the TEN-T Committee2 
to  ensure that  such critical  investments  are made swiftly  and in  a coordinated  and coherent 
corridor approach, ensuring a sound and mature pipeline of projects. 

2 As established in accordance with Article 61 of Regulation (EU) 2024/1679 

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To  support  these  investments,  the  Commission’s  proposal  for  the  next  MFF  (2028–2034) 
promotes  a  tenfold  increase  of  the  available  budget  for  military  mobility,  with  a  proposed 
budget  of  EUR  17.65  billion  under  the  future  Connecting  Europe  Facility  (CEF)  for 
investments  in  TEN-T  dual-use  transport  infrastructure.  National  TEN-T  dual-use  sections 
could be complemented by investments under the proposed National and Regional Partnership 
Plans. Moreover, the Commission has proposed, as one of the general objectives of the future 
European  Competitiveness  Fund,  the  development  of  Union  cross-border  and  critical 
infrastructure  key  to  the  Union’s  competitiveness  and  strategic  independence,  in  particular 
energy and transport, digital and security, defence and space infrastructure as well as social 
infrastructure  and  related  data  and  services.  ECF  InvestEU  instrument  can  further  support 
dual-use  infrastructure  investments  through  loans  and  guarantees.  Furthermore,  the 
Commission MFF proposal outlines that the next Horizon Europe Framework Programme 
may support dual-use actions, including those relevant for military mobility.  

Adapting the military mobility transport network to military standards also requires an accurate 
mapping of the current state of transport infrastructure against military needs. This will 
ensure that investments are well targeted and proportionate to where the real needs are. The 
Commission will accelerate ongoing studies on the state of tunnels and bridges in the EU and 
the  availability  of  dual-use  capacity  at  EU  ports  and  airports.  In  addition,  in  2026,  the 
Commission  with  the  support  of  the  HR,  European  Union  Agency  for  Railways  and  rail 
infrastructure managers, will reassess the physical limitations of the rail infrastructure on the 
priority military mobility corridors to facilitate easier transport of oversized/overweight cargo.  

More  generally,  the  HR3,  supported  by  the  Commission  and  in  close  cooperation  with  the 
relevant European transport agencies, and the EDA, and in consultation with NATO, will re-
evaluate  the  transport  infrastructure  standards  contained  in  the  Council  Military 
Requirements, and align the EU technical transport requirements as much as possible.  

Complementing these efforts, the Commission will work with the HR and industry stakeholders 
to optimise the product design and dimensions of military vehicles and equipment, notably 
to transport them more easily, in the light of the limitations of the transport network and use its 
joint procurement and financial tools to support the implementation of these improved product 
design standards.  

Improving the resilience of our infrastructure 

To enable and sustain  seamless  military  mobility, Europe’s transport network and its assets 
must be resilient and operational. Our infrastructure must be protected as it is not only the very 
basis for the functioning of our internal market but also essential for our deterrence, security 
and defence. Single impacts on critical infrastructure nodes can have widespread effects on the 
entirety of the network. This requires an all-hazards approach to protect the network.  

3 including the European Union Military Staff 

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While the Critical Entities Resilience (CER) Directive4 sets out harmonised requirements for 
enhancing  the  resilience  of  critical  entities  in  the  EU,  infrastructure  that  is  key  for  military 
mobility  requires  particular  safeguarding.  In  order  to  further  protect  them,  the  Commission 
proposes to set up a process for Member States to identify strategic dual-use infrastructure. 
Based  on  a  shared  toolbox  of  resilience  and  protection  measures  that  go  beyond  the 
instruments of the CER Directive, Member States will be able to ensure that strategic transport, 
energy and communication infrastructure is resilient against all hazards and remain operational. 
As announced in the White Paper on Defence Readiness, this includes stronger measures to 
mitigate  risks  associated  with  foreign  ownership  or  control  of  strategic  dual-use 
infrastructure, as well as the possibility for Member States to temporarily take control over 
important infrastructure, equipment and assets.  

It  is  vital  to  protect  interconnected  infrastructure  networks  which  face  growing  risks  from 
cyberattacks and hybrid threats. Recent incidents like the hybrid attacks on central airports in 
Germany and Denmark, on the railway system in France have underscored the importance of 
the  EU’s  unified  policy  to  strengthen  resilience  and  a  shared  civilian-military  situational 
awareness.  Insufficiently  maintained  and  upgraded  infrastructure  systems  increase  risks, 
allowing  malicious  cyber  actors  to  remotely  disrupt  train  safety,  while  the  maritime  sector 
increasingly faces cyberattacks, jeopardising supply chains and port operations. EU-controlled 
satellite communications are critical for the provision of secure governmental communications 
and  real-time  military  coordination  when  terrestrial  networks  fail.  Maritime  assets  can  also 
contribute to the protection of critical infrastructure. It is important to ensure that the entities 
managing strategic dual-use infrastructure take cybersecurity measures as set out in the NIS2 
Directive.  

Over-reliance  on  high-risk  vendors  further  heightens  exposure,  emphasising  the  need  to 
diversify infrastructure components supply to avoid creating uniform attack surfaces for large-
scale cyber incidents. The upcoming revision of the Cybersecurity Act will help to strengthen 
the cyber  resilience  of  supply  chains  for  information  and  communication  technologies  in 
Europe. Furthermore, to combat the threat of radio interference, the Commission , assisted by 
EASA,  the  EU  Military  Staff  and  the  EDA,  will  assess  the  need  to  update  relevant  EU 
legislation,  to  enhance  the  resilience  of  air  traffic  systems,  including  the  communication, 
navigation  and  surveillance  systems,  against  unlawful  interferences.  In  addition,  the 
Commission supported by the ERA will work to strengthen the robustness of the rail traffic 
management system in a harmonised way to ensure continued operations in cases of sabotage 
or other system failure. Coordinated stress-testing processes will be put in place by 2029 to 
facilitate this.  

Lastly,  military  mobility  in  Europe  depends  heavily  on  reliable  access  to  liquid  fuels  and 
energy infrastructure, yet projected declining civil fossil fuel demand and refinery closures 

4 Directive (EU) 2022/2557 of the European Parliament and of the Council of 14 December 2022 on the resilience 
of critical entities and repealing Council Directive 2008/114/EC  

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are  creating  new  risks  and  import  dependencies.  The  EU  is  addressing  energy  supply 
bottlenecks. As announced in the Affordable Energy Action Plan the Commission will review 
the  energy  security  framework,  including  the  Oil  Stock  Directive,  to  assess  adaptations  for 
sustainable  fuels,  mitigate  emerging  risks  and  enhance  military  mobility  readiness  through 
improved  energy  resilience.  The  EU  and  NATO  are  working  closely  together  to  explore 
synergies  between  the  civil  and  military  sectors  in  fuel  supply,  on  identifying  future  fuel 
trajectories, mapping supply chains, and ensuring access to fuel stocks in emergency situations.  

Complementing  this,  the  EU’s  efforts  to  promote  the  production  and  use  of  Sustainable 
Aviation  Fuels  (SAF)  and  Sustainable  Maritime  Fuels  (SMF)  represent  a  significant 
opportunity to boost energy security for both Member States’ armed forces and the civil sector. 
The  Commission  will  promote  increased  production  of  SAF  and  SMF,  including  in 
dispersed production capacities if possible, to improve resilience and energy security. The 
recently adopted Sustainable Transport Investment Plan will play an important role in further 
supporting the scale-up of SAF and sustainable maritime fuels. 

Enhancing  preparedness,  solidarity  and  availability  of  transport  capabilities  for  military 
mobility 

In a European crisis, a single Member State cannot move alone. When Member States face 
transport  capability  gaps,  their  ability  to  act  is  hindered.  Where  availability  of  transport 
capabilities  is  scarce,  we  need  Union-wide  solidarity  mechanisms,  sharing  EU  assets,  and 
ensuring that we know what dual-use transport capabilities are available across the Union. 

The EDA is currently working to identify capability gaps in rail and inland waterway transport. 
We can build on this knowledge when taking concrete steps to address the gaps.  

Several Member States have successfully implemented 'pooling and sharing' initiatives for 
transport and logistical capacities, notably in the field of strategic air lift, inland surface and 
sea transport. However, these initiatives are fragmented and limited.  

Building  on  these,  the  Commission  proposes  to  establish  a  “Military  Mobility  Solidarity 
Pool”. It will cover transport capabilities across all transport modes and seek to make them 
accessible to all Member States. The Commission, supported by the HR and in consultation 
with  Member  States,  will  determine  the  most  suitable  way  to  operationalise,  manage  and 
coordinate the pool. The Commission, under the guidance of the Military Mobility Transport 
Group  ,  will  aim  to  identify  the  types  of  transport  capabilities  to  pool  and  ensure  their 
interoperability. 

Under this initiative, Member States will be able to voluntarily register their own capacities for 
military transport as well as those contracted with civilian operators. The registered capacities 
will  be  made  available  to  all  Member  States,  enhancing  their  ability  to  conduct  military 
transport operations. Additionally, the Union will be able to register additional transport and 
logistic  capabilities  in  the  pool  and  include  contracted  capabilities.  Complementing  this 

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initiative under the Regulation, a Strategic Lift Reserve will enable civilian operators to set 
aside transport capacities (notably airlift and sealift) for EU or Member State use in exceptional 
situations.  

To  expand  existing  capacities,  and  to  incentivise  the  sharing  and  pooling  of  capacities,  the 
Commission, should also support the procurement of new military mobility transport and 
logistic  capabilities  and  help  Member  States  in  sharing  the  burden  of  deployment  costs, 
maintenance expenses, and personnel training costs linked to  the pool. Moreover, under the 
next MFF, the Commission has proposed, within the ECF, the possibility to notably incentivise 
the procurement of transport and logistical equipment and help Member States accessing them.  

We  will  also  equip  our  armed  forces  with  better  visibility  on  existing  civilian  transport 
capacities,  enhancing  their  military  mobility  planning  and  execution.  The  Commission  will 
require Member States to grant their armed forces access to existing registries of vehicles 
and  aircrafts  and  also  set  out  new  rules  to  better  identify  dual-use  rail  vehicles.  The 
Commission will consider further measures to ensure a comprehensive overview at EU level 
of available resources and expertise. 

In addition, the Commission and the HR will also propose the creation of a "military mobility 
catalogue", where European businesses can display their relevant capacities and services for 
military transport, giving our armed forces a clear overview of European services they could 
utilise.  

As a result of scarce capacities, a Member State may end up pre-contracting those already 
booked  by  another  Member  State.  To  address  risks  associated  with  such  possible  double 
booking, we propose that civilian operators be required to keep Member States informed of 
such cases. To be ready to face the most extreme situations, Member States should all have in 
place  a  framework  for  taking  temporary  control  of  necessary  equipment  for  military 
transport operations, also to assist other Member States. 

The  growing  demand  for  military  transport  and  defence  equipment  production  may  strain 
existing dual-use capacities, risking timely delivery and military transport effectiveness. The 
Commission  proposed  under  the  next  MFF,  a  possibility  to  support  the  expansion  of 
industrial  capacities  for  the  production  of  military  mobility  equipment  as  well  as 
the training,  reskilling,  and  upskilling  of  personnel  to  enhance  the  availability  of  skilled 
personnel for the transportation of defence products.  

In  addition,  manufacturing  more  transport  assets  on  the  basis  of  a  “dual-use  by  design” 
approach,  supported  by  the  development  of  dual-use  standards  fit  for  military  and  civilian 
applications  and  simplification  of  certification  procedures,  is  another  way  of  increasing  the 
transport assets’ availability for the armed forces. In complementarity to the Regulation, the 
Commission, in cooperation with the EDA, will task its relevant Agencies (EASA, EMSA and 
ERA)  and  the  European  standardisation  organisations  to  develop  dual-use  standards  for 
military mobility critical transport assets, thereby ensuring consistency with NATO standards 

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for transport assets and the updated dual-use infrastructure requirements. This will ensure EU-
wide interoperability and coherence with EU defence capability priorities.  

In light of the increased role of drones, we will support the establishment of an EU network 
of civil-defence drone testing centres to boost innovation, leveraging ongoing EU initiatives, 
such  as  those  outlined  under  the  European  Strategy  on  Research  and  Technology 
Infrastructures. In addition, a joint drone framework will be developed for integrating drones 
into  airspace  and  ensure  civil  and  military  operations  through  common  standards  and 
procedures. The Commission has made significant progress in implementing the action’s set 
out in the 2023 Communication on countering threats posed by drones5. We will also create a 
European regulatory framework for Counter-Unmanned Aircraft Systems (UAS) technologies, 
work on establishing a methodology for assessing AI-based drone systems' trustworthiness and 
develop a harmonised certification framework for large drones by amending the EASA Basic 
Regulation. 

The Commission also proposes a modification of the EASA Basic Regulation to address the 
need  to  introduce  the  possibility,  for  the  Member  States  or  EASA,  to  establish  regulatory 
sandboxes with a view of enabling the design, development, and testing of innovative aviation 
products  in  a  real-world  environment.  In  the  absence  of  such  opportunities,  EU-based 
development and manufacturing of such products will be severely hampered or slowed down, 
forcing reliance on third country suppliers.  

One of the issues is the urgent need to address the  certification of equipment, notably the 
largest drones for the operations with the highest level of risk. Joint work should be conducted 
between  the  EASA  and  the  military  aviation  authorities  of  Member  States  to  define  the 
requirements.  

Ensuring  effective  coordination  and  whole-of-government  approach  with  a  robust 
governance 

Proper governance, coordination and oversight are indispensable to ensure that when Europe 
moves, it moves as one. The threats we face are collective and so must be our response. Military 
mobility is not just about transport, it is about EU’s ability to act. 

A whole of government approach is an essential enabler of a successful implementation of the 
measures included in the Commission’s proposal of a unique framework for military mobility.  

The  Commission  proposes  a  Military  Mobility  Transport  Group  to  facilitate  the 
coordination  and  steering  of  Member  States'  efforts  and  assist  the  Commission  in  the 
implementation of various measures under the Regulation. It will bring together Member States, 

5  COM/2023/659  COMMUNICATION  FROM  THE  COMMISSION  TO  THE  COUNCIL  AND  THE 
EUROPEAN PARLIAMENT on countering potential threats posed by drones 

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the European External Action Service (EEAS), including the EU Military Staff and the EDA, 
and be chaired by the Commission. 

In the implementation of provisions related to military mobility dual-use transport network and 
corridors,  as  well  as  identification  of  strategic  dual-use  transport  infrastructure,  the 
Commission will be supported by the TEN-T Committee and the EU Military Staff. 

Coordination of military transport at national level is currently done on an ad-hoc basis. Each 
Member State will be required to designate a 'National Coordinator for Military Transport'. 
This  Coordinator  will  be  responsible  for  ensuring  seamless  internal  coordination  and 
cooperation among all relevant national, regional, and local stakeholders involved in military 
transport operations, particularly during the activation of the EMERS. This Coordinator shall 
also  have  the  relevant  technical  expertise  and  administrative  capacity  to  assist  stakeholders 
with regard to the application of customs formalities. 

To ensure the Union's readiness, the Commission proposes a regular assessment through an 
annual “Military Transport Readiness Check” and foresees the possibility to organise “stress 
tests”, focussing on specific issues such as customs formalities or the interplay between civil 
protection  and  military  mobility,  to  identify  areas  for  improvement  and  enhance  overall 
effectiveness. The first stress tests will focus on ensuring fast movements of military assistance 
towards Ukraine and the Union’s Eastern borders. 

There  are  work  strands  of  military  mobility  that  fall  outside  of  the  proposed  regulation, 
including  the  intensive  work  so  far  by  the  EU  and  Member  States  on  Military  Mobility, 
particularly  under  PESCO  and  EDA  frameworks.  The  Commission  and  HR  VP  will  take 
further steps to strengthen this work, including on coordination, and in full respect of the 
Treaties and of applicable EU legislation. 

Deepening existing partnerships 

The EU will continue to further strengthen and expand mutually beneficial partnerships with 
like-minded  partners,  based  on  shared  values  and  interests,  through  Security  and  Defence 
Partnerships. These often cover PESCO, EDA and other defence related frameworks. The EU 
will enhance engagement through the Military Mobility and Logs Hub PESCO projects with 
relevant bilateral partners.  

The EU will also seek to intensify “flagship” cooperation with NATO on military mobility, in 
line  with  the  EU-NATO  agreed  guiding  principles,  while  respecting  Member  States’ 
prerogatives and competences. Overall, relations with NATO on military mobility matters shall 
be reinforced and have a mutually beneficial and transformative impact for Member States and 
non-EU NATO allies. To promote the exchange of information, mutual invitations to working 
group meetings to provide cross-briefings will be encouraged, particularly focused at EDA and 
NATO  Logistics  meetings.  The  EU  will  invite  NATO  to  participate  in  table-top  exercises 

13 

 
 
 
 
 
 
 
 
 
 
(TTX) on military mobility, on condition that the principle of reciprocity is respected. As noted, 
the EU will update its guidance on the use of the EU and NATO Forms 302.  

It is also vital for the EU’s security interests that the provisions of the Regulation will be applied 
in accession countries, especially in Ukraine and Moldova. In this context, accession countries’ 
Common Foreign and Security Policy alignment rate should be taken into account.  

The Regulation will offer substantial benefits to Ukraine. It will do so by improving dual-use 
transport infrastructure, streamlining rules for the transport of military equipment and border-
crossing procedures across Europe. These measures would support faster movement of military 
assistance towards Ukraine and the Union’s Eastern borders. Together, these efforts could help 
reinforce the resilience of Ukraine’s logistical connections with the Union and contribute to 
broader objectives of strengthening European security and defence. 

Russia’s  war  against  Ukraine  provides  invaluable  lessons  for  the  EU,  Member  States  and 
partners,  in  military  mobility.  The  Military  Mobility  Transport  Group  may  invite  Ukraine, 
Moldova and countries of the European Economic Area as observers, with a view to drawing 
from its valuable experience with military and preparing Ukraine for its future EU membership. 
Public-private cooperation and civil-military interaction are critical to accommodate effective 
military  mobility  through  the  whole-of  society  and  whole-of-government  approach,  as 
envisaged in the Preparedness Union Strategy. Strengthening collaboration—through capacity 
building,  effective  communication,  preparedness  and  resilience  planning  and  active 
involvement  in  exercises—can  significantly  enhance  readiness  and  coordination.  Ensuring 
greater awareness and input of civilian operators and authorities can harmonise cross-border 
movements and procedures for military mobility. 

Exercises 

Exercises and testing will strengthen EU military mobility by identifying operational, legal, 
and  infrastructural  improvement  areas.  Exercises  will  validate  procedures,  improve 
coordination  among  Member  States,  enhance  interoperability  with  partners,  and 
generate  lessons  to  inform  policy,  planning,  and  investment.  Through  live  exercises, 
potential vulnerabilities in the logistics process will be identified and solutions subsequently 
proposed for addressing these obstacles. Such simulations will test the compliance of priority 
corridors against key military standards for transport infrastructure.   

From  2026,  the  EU  together  with  Member  States  will  conduct  annual  military  mobility 
exercises.  These  will  be  done  through  exercises  such  as  EU  Military  Exercises  (MILEX), 
command  post  exercises  (CPX),  and  military  live  exercises  (LIVEX),  linked  to  the  Rapid 
Deployment  Capacity,  and  by  participating  in  multinational  exercises,  including  through 
Parallel and Coordinated Exercises organised by the EU and NATO. 

Conclusions  

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The threats we face are shared and so must be our response. The Package marks a decisive step 
towards removing the remaining barriers to military mobility. It reflects our collective ambition 
to respond faster and better protect our citizens across the continent. With this Package, we aim 
to  align  military  mobility  efforts  at  EU  and  national  levels  with  a  view  to  progressively 
achieving an EU-wide military mobility area.  

The time for decisive action is now. The creation of an EU-wide military mobility area is no 
longer an option but a necessity. Our peace and security are at stake. 

The Council and the European Parliament are invited to support the ambitious objectives set 
out in this Joint Communication and to work together on their delivery. The implementation of 
the Package will be closely monitored, with regular updates shared with both the Council and 
the European Parliament to ensure progress. 

The European Commission and the HR invite the European Council to endorse the presented 
framework and to monitor the progress achieved. 

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