COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the revised action plan of the EU Macro-regional Strategy for the Alpine Region
Date: 2025-12-11
Institutions: Directorate-General for Regional and Urban Policy, European Commission
Subjects: Alpine Region, EU macroregional policy, EU strategy, action programme, economic growth, energy policy, environmental policy, innovation, regional development, transport policy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 11.12.2025  COM(2025) 750 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the revised action plan of the EU Macro-regional Strategy  for the Alpine Region {SWD(2025) 403 final}  
 
 
Table of Contents 
1. 

INTRODUCTION ......................................................................................................................... 2 

2.  ACHIEVEMENTS OF THE STRATEGY ................................................................................. 3 

3.  THE REVISED ACTION PLAN ................................................................................................. 4 

4.  THE THEMATIC POLICY PILLARS AND ACTIONS OF THE STRATEGY .................. 6 

5.  GOVERNANCE AND IMPLEMENTATION OF THE STRATEGY .................................... 7 

6.  CONCLUSION ............................................................................................................................. 9 

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1.  INTRODUCTION 

Between 2009 and 2015, the European Council endorsed the creation of four European Union 
macro-regional  strategies. By  enabling  countries to pool  resources and  take  a cross-sectoral 
and multi-level governance approach to cooperation, the strategies tackle issues that no single 
country  can  effectively  address  alone.  All  the  macro-regional  strategies  deliver  results  that 
support  fair,  green  and  digital  transitions,  regional  development  and  growth.  The  strategies 
have  operated  successfully  for  over  a  decade.  The  macro-regional  concept  is  attractive  and 
receives  significant  attention  from  political,  public,  private,  academic  and  civil  society 
stakeholders across Europe. 

The European Commission adopted the EU Strategy for the Alpine Region in July 2015, at the 
request  of  the  seven  participating  countries.  The  Strategy  was  endorsed  by  the  European 
Council  on  28 June  2016.  As  a  European  macro-regional  strategy,  it  aims  to  make  more 
effective use of existing  financial resources,  strengthen coordination among institutions and 
policies, and improve coordination of existing legislation. 

The Alpine region is home to 80 million people (about 15% of the entire EU population) and 
encompasses 48 regions across five EU Member States (Germany, France, Italy, Austria and 
Slovenia) and two non-EU countries (Liechtenstein and Switzerland). Located in the heart of 
Europe, it boasts a strong network of major metropolises, Alpine towns and villages, making 
it  one  of  the  wealthiest,  most  attractive,  competitive,  innovative  and  productive  regions  in 
Europe.  With  its  unique  geographical  and  natural  features,  the  region  is  home  to  some  of 
Europe’s  most  important  water  resources  and  is  one  of  the  continent’s  main  biodiversity 
sanctuaries. Due to its unique characteristics, the Alpine region faces specific challenges, from 
the severe impacts of climate change – melting glaciers, rising natural hazards, and disrupted 
water cycles – to socio-economic issues like ageing populations, youth migration, and unequal 
infrastructure. 

The  main  objective  of  the  Strategy  is  to  build  a  framework  for  governmental  and  non-
governmental  cooperation  between  various  stakeholders,  fostering  cross-border  strategic 
approaches, projects, networking and cooperation on key topics for the benefit of the Alpine 
region as a whole. Where there is a collective need and interest across the Alps, the Strategy 
provides a framework for better cooperation. 

The action plan for the Strategy, adopted in 2015, focuses on strengthening mutual solidarity 
between  the  Alpine  regions  to  enhance  the  region’s  attractiveness  and  competitiveness, 
reducing  social  and  regional  inequalities  and  ensuring  the  preservation  and  sustainable 
management of its unique natural environment. The founding document of the Strategy1 laid 
the path towards a new relationship between metropolitan, peri-mountain, mountain and remote 
areas, focusing on three priorities: 

(1) competitiveness and innovation 

(2) environmentally friendly mobility and connectivity and 

1 Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social Committee and the Committee of the Regions concerning a European Union Strategy for the Alpine Region, 
COM(2015) 366 final, Brussels, 28 July 2015 

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(3) sustainable management of energy, natural and cultural resources. 

A decade after the Strategy was adopted, the world has changed significantly. The geopolitical 
climate is becoming increasingly unstable amid Russia’s ongoing war of aggression against 
Ukraine, the lingering socio-economic effects of the Covid pandemic and rapid technological 
progress. The effects of climate change are more apparent than ever, with increasingly frequent 
heatwaves, the comparatively rare occurrence of snowy winters, and a surge in natural disasters 
due to intense rainfall. These new external conditions, coupled with new and updated priorities 
and initiatives of the European Union, such as the Clean Industrial Deal and the Union of Skills, 
make  it  necessary  to  update  the  action  plan  and  reassess  the  Strategy’s  implementation  to 
ensure  alignment  with  the  region’s  contemporary  geopolitical  and  policy  challenges. 
Additionally, after 10 years of implementation, internal processes and structures have evolved, 
and new bodies and governance mechanisms have emerged within the macro-region. 

The new action plan is an updated and refocused version of the initial action plan, concentrating 
on matters of political and strategic significance. The updated plan will support the Strategy in 
addressing  upcoming  challenges,  encouraging  cross-border  exchanges  and  solutions  for  a 
sustainable, prosperous Alpine region. 

This  Communication  presents  the  revised  action  plan  drawn  up  by  the  strategy  partners.  It 
explains  the  background,  the  rationale,  what  has  changed  and  how  the  plan  will  enable  the 
Strategy to respond to new and future changes. 

2.  ACHIEVEMENTS OF THE STRATEGY 

Delivering results on key EU priorities 

The  Strategy  has  delivered  positive  results  across  several  areas,  strengthening  regional 
cooperation and networking under its three thematic objectives. Over the past 10 years, it has 
successfully advanced EU priorities in the region, notably contributing to the European green 
and digital transitions and to climate change adaptation and mitigation. This has been achieved 
through  a  cross-sectoral  approach  based  on  multi-level  governance  and  broad  stakeholder 
involvement. In addition, the Strategy has tailored key EU initiatives to the specific needs of 
the region. 

The launch of the Strategy marked a significant milestone in coordinating international efforts 
to  tackle the  challenges  faced by the Alpine  region. Renowned for its rich biodiversity  and 
vibrant cultural landscapes, the region plays a pivotal economic, environmental and social role 
within  Europe.  Traditionally,  the  region  has  faced  distinctive  challenges,  ranging  from 
environmental vulnerabilities to socio-economic disparities. Since its inception, the Strategy 
has facilitated successful cross-border projects that have enhanced environmental protection, 
infrastructure development and socio-economic integration, thereby consolidating the region’s 
status as a key European macro-region. These collective efforts have laid a strong foundation 
for collaboration, on which the revised action plan seeks to build further. 

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Funding the Strategy 

Embedding  the  Strategy  into  multiple  funding  sources  is  crucial  for  its  successful 
implementation. To ensure effective implementation and ownership at all levels, it is essential 
to leverage funds from various sources such as EU, national and regional authorities and the 
private  sector.  Coordinating  these  funding  opportunities  strategically  across  different  levels 
will  maximise  impact.  Historically,  significant  support  has  come  from  the  Interreg  Alpine 
Space programme, but actively diversifying funding sources will further enhance the Strategy’s 
reach  and  effectiveness.  This  approach  can  unlock  the  Strategy’s  full  potential  and  drive 
meaningful progress. 

As  the  Strategy  takes  a  regional  approach,  all  funding  instruments  with  a  clear  regional 
dimension should be considered to support implementation, along with thematic instruments 
that could  be used  more effectively  when  coordinated  across the whole  region. Besides  the 
Interreg Alpine Space programme, which is financed by the European Regional Development 
Fund, possible sources of funding include: other national and regional programmes financed 
by  the  European  Regional  Development  Fund,  the  European  Social  Fund  Plus  and  the 
European Agricultural Fund for Rural Development. Other possible sources of funding include 
EU  thematic  programmes,  such  as  Erasmus+  and  InvestEU.  Lastly,  loans,  equity  and 
guarantees provided by the European Investment Bank can also be sources of funding.  

The  main  partners  of  the  Strategy’s  stakeholders  are  the  managing  authorities  of  EU 
programmes.  A  ‘financial  dialogue’  between  strategy  implementers  and  programme 
administrators is therefore crucial if they are to understand and align their respective needs. In 
this context, the Strategy’s Financial Dialogue Network has helped link the Strategy’s activities 
with  available  funding  by  promoting  dialogue  and  improving  the  exchange  of  information 
between the bodies responsible for managing funding opportunities. 

3.  THE REVISED ACTION PLAN 

The process to revise the  action plan highlighted the need to address new or more pressing 
challenges and to develop a more focused vision for implementing the Strategy and adopt a 
more  systematic  approach  to  improve  ownership  and  awareness  of  the  Strategy  among  all 
participating countries. At the same time, there was recognition of the need for broad continuity 
in relation to the thematic policy pillars and the actions of the Strategy. 

The  Alpine  region  is  acutely  affected  by  climate  change.  Rising  temperatures  are  causing 
glaciers to melt, increasing the risk of natural hazards such as avalanches and landslides. These 
changes affect the water cycle and threaten biodiversity, economic stability and safety, with 
consequences not only for the Alpine region but also for downstream countries. Additionally, 
socio-economic issues such as an ageing population, the migration of young people out of rural 
areas, and disparities in infrastructure and connectivity require thoughtful interventions. The 
digital divide further compounds these challenges, creating a need for enhanced technological 
infrastructure and digital literacy to ensure equitable development. 

In  response  to  these  challenges,  the  revised  action  plan  sets  comprehensive  goals  to  foster 
resilience, innovation, inclusion and sustainable governance across the region. 

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Since 2023, participating countries and the Commission have worked together in a multi-level, 
coordinated manner to produce a revised action plan that takes account of the geopolitical and 
policy developments since the Strategy was first drawn up. The revised action plan also reflects 
the lessons learned in implementing the Strategy over the years and includes changes in the 
governance and management of the Strategy brought in over the last decade. 

This work has led to the revised action plan accompanying this Communication, which more 
accurately  reflects  the  needs  and  opportunities  of  the  region  and  provides  a  more  robust 
framework  that  will  enable  the  participating  countries  to  work  more  effectively  together  in 
achieving the aims of the Strategy. 

What is new? 

The revised action plan builds on the previous version with the following two main changes: 

A  mission-based  approach,  which  aims  to  tackle  significant  challenges  of  Alpine-
a) 
wide relevance by setting ambitious yet realistic objectives and providing the political steer 
and visibility needed to implement the Strategy. Missions are designed to facilitate synergies 
and promote better connections between actions and projects in a specific area. They involve 
the  political  level  more  closely  by  designating  a  mission  rapporteur,  an  elected  politician 
appointed by the General Assembly. In pursuing cross-cutting aims, they enable projects and 
initiatives to be clustered around one goal, strengthening coherence between the political and 
technical level. 

Missions are based on the action plan and are prepared in close cooperation with the Executive 
Board and the action groups, involving various stakeholders. 

b) 
Changes to the Strategy’s governance system. Over the last decade, the procedures 
and governance of the Strategy have evolved significantly, and the revised action plan now 
provides a full overview of the structures in place. These include: 

The board  of action group leaders  and the trio presidency. Following  consultations with 
stakeholders, the governance of the Strategy has also been strengthened over time through the 
creation of these new bodies. Action group leaders are responsible for implementing concrete 
projects,  and  the  board  facilitates  synergies  and  cooperation.  The  trio  presidency  ensures 
continuity between past, current and future presidencies. 

The  Youth  Council.  Established  in  in  2021,  the  Youth  Council  is  involved  in  all  levels  of 
governance.  It  contributes  to  the  strategy  through  projects  and  fosters  connections  among 
young people across the Alpine region. 

The  technical  support  structure  and  the  secretariat.  Another  important  change  to  the 
governance was to establish the technical support structure with its secretariat in 2023. It is 
financed by the Interreg Alpine Space programme. The secretariat supports both the decision-
making bodies of the Strategy and its implementers, the action groups. 

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4.  THEMATIC POLICY PILLARS AND ACTIONS UNDER THE 

STRATEGY 

Thematic policy pillars and objectives 

Although the challenges of cooperation in the Alpine region have not changed fundamentally 
in recent years, the Strategy has laid the groundwork for responding to the urgent need to adapt 
to diverse transformation processes by clearly focusing on and prioritising specific topics. The 
revised action plan maintains the initial focus on the three thematic policy pillars: economic 
growth and innovation; mobility and connectivity; and the environment and energy. Each pillar 
corresponds to one of the Strategy’s objectives. In response to the current challenges in the 
Alpine region and the most recent strategy documents, these pillars contain nine actions. 

Each action is broken down into three to seven topics, which form the basis for the work of the 
action groups. While the actions themselves remain consistent with the previous version of the 
action plan, the wording and focus of each has evolved. The action groups foster a strong sense 
of ownership among participants across the region by operating within a broad network and 
aligning cooperation with the political aims. 

Economic growth and innovation 

The aim of this pillar of the Strategy is to build a competitive and innovative economy in the 
Alpine region that is both circular and climate neutral. This is essential for supporting human 
activities and for maintaining a sustainable balance with the environment. 

The three actions under this pillar focus on: 

1.  strengthening  an  effective  research  and  innovation  ecosystem  by  nurturing  a 
supportive environment for research and innovation that drives growth, especially in 
sectors like mountain agriculture, forestry and energy;  

2.  increasing the economic potential of strategic sectors by identifying and tapping into 
the value of key sectors and turning research into tangible benefits through effective 
technology transfer; and  

3.  improving  the  relevance  of  labour  market  policies,  education  and  training  for 
strategic sectors  by ensuring that the labour market  is  aligned with  business  needs, 
emphasising  the  importance  of  education  and  training,  and  enhancing  cross-border 
labour mobility and cooperation to further drive economic progress. 

Mobility and connectivity 

The  aim  of  this  pillar  is  to  create  a  more  accessible  and  interconnected  Alpine  region  by 
advancing sustainable transport and mobility  solutions and  making full use  of digitalisation 
and new technologies. 

The two actions under this pillar focus on: 

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1.  promoting intermodality and interoperability in passenger and freight transport 
by tackling the need for efficient and sustainable transport systems at various levels to 
enable efficient transport of both people and goods; and 

2.  connecting  people  digitally  and  promoting  accessibility  to  public  services  by 
focusing  on  boosting  digital  connectivity  to  make  public  services  more  easily 
accessible,  thereby  enhancing  socio-economic  integration  and  paving  the  way  for 
regional growth and development. 

Environment and energy 

Under  this  pillar,  the  goal  is  to  create  a  high  level  of  ecological  connectivity  and  an 
environmentally sustainable region that is ready to adapt to and mitigate the impacts of climate 
change. 

The four actions under this pillar focus on: 

1.  preserving  and  capturing  the  value  of  natural  and  cultural  resources  by 
emphasising  the  careful  balance  between  preservation  and  sustainable  use,  with  a 
particular focus on restoring and managing sustainably soil and water resources;  

2.  developing  ecological  connectivity  across  the  Alpine  region  by  conserving, 
improving and restoring biodiversity and ecosystem services, and promoting blue and 
green infrastructure to create seamless connections across areas;  

3.  improving risk management and better managing climate change by understanding 
and managing the risks posed by environmental degradation and climate change, and 
encouraging cooperation in tackling natural disasters and extreme weather events, in 
priority through nature-based solutions; and  

4.  making the Alpine region a model for energy efficiency and renewable energy by 
focusing on energy efficiency and the use of renewable resources compatible with the 
Alpine environment, which are essential for mitigating the effects of climate change. 

Climate  change  induced  changes  to  the  water  cycle,  including  glacial  melting,  will  have 
consequences not only for the Alpine region but also for downstream countries. Joint and well-
coordinated  management  of  border-crossing  rivers  is  essential  to  secure  an  integrated 
protection, enhancement and restoration of water resources and their ecosystems, and key for 
Europe’s water resilience and water security. The increased use of nature-based solutions can 
contribute  to  restoring  the  water  cycle  and  improving  climate  adaptation,  including  better 
protection against floods and water scarcity, thus enhancing the resilience of the whole region. 

Together,  the  three  pillars  foster  a  balanced  approach  that  not  only  encourages  economic 
development  and  better  connectivity  but  also  ensures  that  the  environment  is  protected, 
building resilience in the Alpine region so it can adapt to and thrive amid global challenges. 

5.  GOVERNANCE AND IMPLEMENTATION OF THE STRATEGY 

The governance framework of the Strategy comprises various bodies and tools that steer and 
direct  its  activities.  Their  detailed  composition  and  manner  of  interaction  are  set  out  in  the 
action plan and in their respective rules of procedure. 

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The Strategy’s governance is designed to facilitate capacity building and is clear-cut and result-
oriented, thereby enhancing Alpine cooperation. It ensures the active participation of national, 
regional  and  local  stakeholders,  along  with  representatives  from  the  economic  sector, 
academia, civil society and the general public, especially young people. It guarantees that the 
key implementers of the Strategy are duly empowered with a clear mandate to carry out their 
responsibilities. It also ensures clear and comprehensive communication at all levels regarding 
the Strategy’s outcomes and added value. 

Over  the  past  decade,  the  governance  framework  has  evolved,  reflecting  the  strong 
commitment of the stakeholders to implement the Strategy. This underscores the need to further 
improve coordination within and between the  actions and to  further strengthen  the political 
leadership provided to the Strategy’s coordinating levels. 

Bodies 

General Assembly. The General Assembly is the Strategy’s highest political decision-making 
body,  setting  strategic  priorities  and  goals.  It  consists  of  high-level  political  representatives 
from  participating  states  and  regions,  along  with  observers  such  as  the  Youth  Council,  the 
Alpine  Convention  and  the  Interreg  Alpine  Space  programme.  The  European  Commission 
participates as a facilitator and co-chair, ensuring alignment with EU legislation but without 
voting rights. The General Assembly endorses action plans, monitors implementation progress 
and facilitates cross-regional cooperation. 

Presidency. The presidency rotates annually among partner states.  It plays a critical role in 
chairing the General  Assembly and  Executive  Board meetings, developing the annual  work 
programme and organising sector-specific ministerial meetings. 

Executive Board. The Executive Board is responsible for implementing the action plan and 
includes national coordinators and representatives from participating regions and states. The 
European  Commission,  in  the  role  of  facilitator  and  co-chair,  verifies  compliance  with  EU 
legislation and alignment with EU priorities. The Youth Council, the Alpine Convention, and 
other bodies observe its proceedings. The Board oversees action groups, coordinates General 
Assembly meetings and promotes consistency in the implementation of the Strategy. 

National coordinators. National coordinators have a crucial role in overseeing and assisting 
with the design and implementation of the Strategy and promoting stakeholder participation. 
They are members of the Executive Board and manage national delegations. They are also the 
primary contact  point at  national  level, coordinating the  Strategy in  their country. They  are 
appointed by their government or institution and represent either the national or regional level. 

Action groups. Action groups are tasked with the day-to-day execution of the Strategy across 
thematic  areas.  Consisting  of  experts  and  stakeholders,  action  groups  coordinate  actions 
comprehensively and integrate them across regions. They develop projects and policies  that 
contribute to the Strategy’s objectives. Action group leaders facilitate communication and drive 
group activities in line with their respective work plans. 

As  described  in  Section  3,  these  bodies  are  complemented  by  new  structures:  the  trio 
presidency, the board of action group leaders, the Youth Council, and the technical support 
structure and the strategy secretariat. 

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Implementing the Strategy 

Implementation of the Strategy’s activities is guided by the action plan, which operates on three 
strategic levels: thematic policy pillars and objectives, actions, and projects. The action plan 
serves as a reference framework for the General  Assembly,  the Executive Board and action 
groups,  helping  them  to  develop  their  work  plans  based  on  the  missions  approved  by  the 
General Assembly. 

Work plans are triennial programmes designed to translate the objectives stated in the action 
plan and the missions approved by the General Assembly into concrete results. They ensure 
policy coherence between the action plan and the projects and initiatives implemented by action 
groups.  The  work  plans  are  focused  and  realistic  and  reflect  the  Strategy’s  ambitions, 
incorporating  guidance  from  the  General  Assembly  and  the  Executive  Board.  They  will  be 
complemented by the new missions’ tool described earlier in this communication. 

6.  CONCLUSION 

Each macro-regional strategy reflects the unique geographic, economic and political contexts 
of its respective region and is adapted to the specific strengths and challenges that each macro-
region  faces.  As  inter-governmental  initiatives,  they  are  not  bound  by  any  ex-ante  rules  on 
implementation  structures  or  project  organisation.  Instead,  each  strategy  grows  and  adapts 
organically to its own circumstances. 

Since 2015, the Alpine Strategy has evolved a sophisticated governance model with a broad 
degree  of  representation  from  different  sectors  of  society.  The  comprehensive  update  to  its 
governance  system  in  the  revised  action  plan  reflects  the  roles  and  responsibilities  of  new 
bodies and structures, like the trio presidency, the board of action group leaders, the Youth 
Council,  the  technical  support  structure  and  the  secretariat.  These  new  bodies,  which  have 
emerged over the past decade, have significantly improved the functioning of the Strategy.  

The  authors  of  the  Alpine  Strategy  have  chosen  not  to  make  any  significant  changes  to  its 
priorities and objectives. Instead, they have opted for continuity, reflecting the broad agreement 
among the strategy partners that the priorities and objectives chosen 10 years ago remain valid 
and relevant to the Alpine region. However, the Strategy has introduced a new mission-based 
approach, with the clear intention of strengthening synergies, increasing political ownership 
and responsibility, and raising its overall profile. 

Overall,  with  these  new  elements,  the  strategy  can  further  support  and  develop  the 
attractiveness, resilience and competitiveness of the Alpine region and improve the quality of 
life for the people living in the region. The Commission considers that the revised action plan 
provides  a  future-oriented  framework  to  promote  sustainable  growth,  competitiveness, 
environmental protection and enhanced cooperation in the region. The revised action plan will 
enable the Alpine region to meet the challenges and opportunities that it faces effectively, so 
that it can continue to be a role model for cooperation in Europe.  

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