COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Communication on the EU’s eastern regions bordering Russia, Belarus and Ukraine Strong regions for a safe Europe
Date: 2026-02-18
Institutions: Directorate-General for Regional and Urban Policy, European Commission
Subjects: EU investment, European security, common security and defence policy, economic and social cohesion, external border of the EU, frontier region, hybrid warfare, military mobility, regional cooperation, regional development

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 18.2.2026  COM(2026) 82 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Communication on the EU’s eastern regions bordering Russia, Belarus and Ukraine                       Strong regions for a safe Europe  
 
 
‘Last week, I saw this for myself when I visited frontline Member States. They know best the threat 
Russia poses. And there is no doubt: Europe’s eastern flank keeps all of Europe safe.’ Ursula Von 
der Leyen, State of the Union speech 2025. 

As Russia’s full-scale war of aggression against Ukraine continues into the fifth year, our common 
security is directly linked to the strength, resilience and stability of the eastern regions bordering 
Russia,  Belarus  and  Ukraine  12.  The  challenges  caused  by  Russia  and  Belarus  are  numerous, 
including hybrid threats, weaponised migration, violation of airspace by drones and fighter jets, 
radio frequency interference, notably jamming and spoofing of global navigation satellite systems 
(GNSS), cyber-attacks, sabotage of air traffic and land and subsea infrastructure, as illustrated by 
recurrent  damage  to  underwater  cables  3,  foreign  information  manipulation  and  interference 
(FIMI) and hostile rhetoric.  

Moreover, these regions face some of the EU’s most acute demographic pressures, with some 
having lost more than 17% of their population in the last decade. Overall, the population of the 
eastern border regions decreased by 2.6% on average between 2016 and 2025, compared to 1.2% 
population  growth  in  the  EU  as  a  whole.  Low  fertility,  population  ageing  and  emigration  -
intensified by heightened security risks, economic downturn and uncertainty - have accelerated 
the  departure  of  young,  educated  and  skilled  people.  This  has  deepened  demographic  decline, 
leading to labour shortages, weakened public finances and the closure or scaling back of essential 
services. If left unaddressed, depopulation risks becoming long-term and irreversible reducing the 
resilience of regions and Member States to respond to crises and security threats. 

Yet, in the face of these threats and pressure, these regions are adapting and turning structural 
vulnerabilities  into  strategic  assets,  becoming  a  powerful  source  of  inspiration  for  the  rest  of 
Europe. They show that innovation can thrive, solidarity can deepen and – even in difficult times 
– cooperation and determination can drive progress and unity forward.  

The EU’s eastern regions with a land border with Russia, Belarus and Ukraine – key facts: 

•  The most affected Member States have long land borders with Russia and Belarus: Finland, Estonia, 
Latvia,  Lithuania  and  Poland  share  3  646 km  of  border  with  them  (25%  of  total  EU  European 
external land borders) – respectively 1 346 km for Finland, 340 km for Estonia, 453 km for Latvia, 
893 km for Lithuania and 614 km for Poland. 

Poland, Slovakia, Hungary and Romania share 1 372 km of land border with Ukraine (10% of total EU 
external land borders). 

The EU’s regions bordering the sea border with Ukraine – key facts: 

•  Romania and Bulgaria have a combined Black Sea coastline of over 600 km, bordering the maritime 

Black Sea basin also shared with Ukraine and Russia. 

The EU’s border with Russia, Belarus and Ukraine runs along regions in nine Member States (Finland, 
Estonia, Latvia, Lithuania, Poland, Slovakia, Hungary, Romania, and Bulgaria). 

1‘The eastern border regions do not represent national borders, but they are European borders. Our action in these regions plays 
a key role to defend our common European values. Our duty is to ensure that the people in these regions feel safe, protected and 
supported with opportunities for good jobs, quality education and services’ Rafaelle Fitto at the EU Eastern Border Regions High-
Level Conference in Białowieża, June 2025, Poland. 
2 For the purposes of this Communication, eastern border regions are defined as those bordering Russia, Belarus or Ukraine. 
3 Cable Security Action Plan, JOIN(2025) 9 final 

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The regions most affected by the deteriorating security environment and by increased risks 
of conventional military actions are those on the external border with Russia and Belarus 
(see map above representing regions at NUTS 2 level). Russia’s war of aggression against Ukraine 
and hostile behaviour by Russia and Belarus have led to border restrictions and brought cross-
border activities to a standstill. As a consequence, cross-border trade, transport and vital economic 
exchanges have been almost completely cut  off, severely  impacting local  communities  and the 
Member States concerned more broadly. Security conditions have worsened, and the situation is 
particularly critical in the Member States bordering Russia, which continues its illegal invasion in 
Ukraine, and EU-funded cross-border projects with the Russia and Belarus have been suspended 
because  of  the  breakdown  in  relations.  The  recent  use  of  weather  balloons  to  transport  illicit 
cigarettes  from  Belarus  to  Lithuania4  or  Poland  highlights  how  criminal  organisations  adapt  to 
sustain their illegal activities.  

4 In 2025, Lithuanian authorities intercepted 600 contraband balloons launched from Belarus. 

2 

 
 
 
 
Regions  bordering  Ukraine  also  face  important  economic  and  social  challenges,  including  an 
influx of displaced persons, disruptions in trade, smuggling of excise goods, particularly tobacco 
products,  and  deteriorating  housing  stock,  health  and  social  services.  Additionally,  redirected 
cargo traffic has increased pressure on the regional logistics network. Mining of the Black Sea has 
led to higher shipping costs and disruptions to local fisheries in EU regions bordering it. The EU–
Ukraine Solidarity Lanes have been essential in mitigating blocked Ukrainian Black Sea export 
routes sustaining trade flows and facilitating EU‑supported infrastructure investments. Moreover, 
the continued support of the EU and its Member States, coupled with Ukraine’s anticipated future 
accession, will contribute to the stabilisation and strengthening of the EU regions along this border.  

The  latest  analyses  indicate  that  Member  States  on  the  eastern  external  border  have 
experienced  slower  GDP  growth  and  higher  inflation  because  of  the economic  fallout  from 
Russia’s war of aggression.  The median harmonized index of consumer prices  inflation rate in 
Member  States  along  the  eastern  border  was  at  least  3.7  percentage  points  higher  than  the  EU 
average, while the annual average GDP growth in 2022–2023 was 1.9 percentage points lower 
than the projection for the EU 5. This situation has been compounded by higher borrowing costs, 
weaker investment and consumer spending, while also driving an increase in defence spending. 
Before the war, Russia accounted for over 30% of Lithuania’s machinery exports, more than 40% 
of Latvia’s food-processed exports and around 50% of Finland’s wood imports. Since the conflict, 
tighter  border  controls  and  sanctions  have  disrupted  trade,  significantly  impacting  the  eastern 
border regions’ economies. In addition, foreign tourist nights in the most affected Member States 
were down by around 10–35%, while rail freight volumes dropped by as much as 75–80%. Their 
higher energy intensity and larger dependence on Russian gas and oil amplified the shock from 
energy and food price spikes, pushing up inflation to levels not seen in decades. These impacts 
have also been felt in EU Member States that have a Black Sea coastline, such as Bulgaria, with 
economic repercussions which have contributed to overall slower growth and increased inflation. 

At the same time, the eastern border regions have important assets, not only in terms of established 
industries, agriculture, forestry, emerging tech hubs, educational institutions and unique natural 
resources, but also the resilience of their people.  

This  Communication  confirms  the  Commission’s  commitment  to  supporting  eastern  border 
regions,  given  their  importance  and  relevance  to  the  EU  collective  security  and  prosperity.  It 
presents an initial set of actions the Commission intends to launch to help these regions address 
the specific and unprecedented challenges they face. It builds on solid foundations: the recognition 
of their importance in the State of the Union, the call for evidence 6, and the close cooperation 
with national administrations, regions, municipalities and the public and private sectors. It  also 
builds  on  several  initiatives  targeting  these  regions,  notably  the  inclusive  and  participatory 
processes of the Interreg programmes, as well as work done by the Association of European Border 
Regions  and  initiatives  carried  out  in  cooperation  with  the  Organisation  for  Economic  Co-
operation and Development (OECD) and the World Bank Group. 

During the preparatory outreach and call for evidence, stakeholders from these regions highlighted 
the  urgent  challenges  they  faced,  stressing  the  need  for  targeted  support,  including  financial 
assistance, and a coordinated response. Consequently, a comprehensive set of actions at all levels, 
from the local to the European, is required 789.  

In the implementation of the initiatives outlined in this communication, the Commission will be 

5 European Economic Forecast Autumn 2025. 
6 249 replies received between 7 August and 18 September 2025, available in the Commission’s Have your say portal: Call for 
evidence. 
7  European  Parliament  resolution  on  Discharge  2023:  EU  general  budget  –  Commission,  executive  agencies  and  European 

Development Funds, recommendation 40. 

8 REPORT on strengthening rural areas in the EU through cohesion policy | A10-0092/2025 | European Parliament. 
9 Speech by Executive Vice-President Fitto at the EU Eastern Border Regions High-Level Conference in Białowieża, Poland. 

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guided by the adherence of the Member States concerned to the shared values of the EU, notably 
to the rule of law.  

Ongoing efforts and support 

Since  the  start  of  the  war  of  aggression  against  Ukraine,  the  EU  has  been  providing  political, 
technical  and  financial  assistance  to  the  eastern  border  regions,  in  particular  through  cohesion 
policy and the common agricultural policy (CAP). These policies play a key role in strengthening 
infrastructure,  boosting  economic  resilience,  promoting  skills  development,  supporting 
employment and social inclusion, ensuring sustainable farming and improving crisis preparedness 
and response. For example, the agricultural reserve was mobilised for the benefit of some eastern 
border regions. 
The mid-term review of cohesion policy 10 – launched as part of the ongoing effort to adapt EU 
investments to evolving challenges – identified key priorities of direct relevance for the eastern 
border regions: defence and civil preparedness, competitiveness, energy, affordable housing and 
water resilience. Their specific situation was recognised with targeted measures, including a 9.5% 
increase in pre-financing and a higher 10% co-financing rate to programmes in these regions. 

Member States along the eastern border have made extensive use of this flexibility under the mid-
term  review  as  demonstrated  by  the  substantial  allocations  towards  security  and  resilience. 
Finland and Estonia are reprogramming significant amounts for the defence industry and military 
mobility.  Latvia is channelling considerable resources to defence infrastructure, military mobility 
and emergency shelters. Lithuania is allocating parts of their multi-fund programme towards its 
defence  sector, critical infrastructure,  civil  preparedness  and  protection  training, and military 
mobility. In Poland, the eastern regions are planning to mobilise sizeable investments to support 
civil  preparedness,  dual-use  infrastructure,  defence-related  industries  and  water  and  energy 
security. The new investments also include protection of critical infrastructure, such as hospitals, 
water treatment facilities and energy generators in public buildings. With the recently reallocated 
funding, Slovakia is supporting defence, security and civil preparedness, whereas Hungary and 
Romania are investing in military mobility. And Bulgaria is reprogramming to support strategic 
sectors,  enhance  its  industrial  capacity,  and  develop  and  manufacture  defence  and  dual-use 
technologies. 

The Just Transition Fund (JTF) targets around EUR 19.3 billion to regions most affected by the 
transition to climate neutrality. EUR 10.1 billion (more than half of this allocation) benefit the nine 
countries bordering Russia, Belarus and Ukraine, directly supporting several of the regions located 
along the eastern border. 

Interreg  programmes  are  improving  cross-border  security  cooperation  and  exchange  of  good 
practice  on  resilience,  as  well  as  linking  industry  and  academia  to  address  skills  gaps  in 
cybersecurity or defence. At the start of Russia’s war of aggression, the Commission immediately 
suspended  Interreg  programmes  with  Russia  and  Belarus,  leading  to  the  reallocation  of 
EUR 150 million  to  internal  cooperation  programmes  and  EUR 160 million  to  external 
cooperation  programmes  with  Ukraine  and  Moldova.  Targeted  calls  and  dedicated  support  for 
potential beneficiaries from these regions, have also been implemented. While stakeholders have 
considered  these  measures  to  be  very  helpful,  these  actions  have  not  fully  offset  the  negative 
impacts resulting from the suspension of certain Interreg programmes. 

Support has also been channelled through many other instruments and programmes. The Recovery 
and  Resilience  Facility  (RRF)  contributes  to  strengthening  defence  capabilities,  building 

10 Regulation (EU) 2025/1914 ; Regulation (EU) 2025/1913. 

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connectivity  infrastructure,  creating  employment  opportunities  and  facilitating  the  economic 
transition along the EU’s eastern border. The recovery and resilience plans of relevant Member 
States  have  allocated  approximately  EUR 14.5 billion  for  investments  in  these  areas.  These 
investments are accompanied by relevant reforms, further contributing to economic growth.  

An  additional  EUR 170 million  under  the  Border  Management  and  Visa  Policy  Instrument 
supports  Member  States  bordering  Russia  and  Belarus  in  upgrading  surveillance  systems, 
telecommunications and counter-drone capabilities. Complementing these efforts, the EU Space 
and Secure Connectivity Programmes provide secure and resilient space-based services that can 
operate  effectively  in  both  nominal  and  degraded  environments.  Through  advanced  satellite 
connectivity,  advanced Galileo  services  supporting  precise  positioning, navigation and  time 
synchronization,   and  Earth  observation  capabilities,  the  EU  ensures  continuous  and  precise 
operations  enhancing autonomy and situational awareness while providing valuable data for local 
and regional needs.  

Agriculture, food production, forestry, and communities in these predominantly rural regions have 
been  supported  by  the  CAP,  sustaining  farm  income,  promoting  sustainable  practices  and 
strengthening  rural  development.  LEADER  and  European  innovation  partnerships  encourage 
bottom-up innovation, improving productivity and supply chains. To mitigate the negative impact 
of the war in Ukraine on the fisheries, aquaculture and processing sector, specific financial crisis 
support  measures  were  also  introduced  under  the  European  Maritime,  Fisheries  and 
Aquaculture Fund.   

Horizon Europe funds research across a wide range of domains, including in energy, transport, 
agroecology, water resilience, food systems and the bioeconomy, while also helping to strengthen 
of regional innovation ecosystems.  

The Technical Support Instrument and the Catching-up Regions Initiative provide additional 
help in administrative capacity building and addressing bottlenecks to growth. 

Digital transformation in these regions has been supported through the European Broadband 
Competence Offices Network, which provides technical assistance and shares best practices to 
strengthen digital infrastructure and bridge the digital divide. The European Digital Innovation 
Hubs (EDIHs) also help strengthen the EU’s eastern flank and support Ukraine. 

The  Commission,  in  collaboration  with  the  European  External  Action  Service,  is  also 
strengthening  resilience  against  disinformation.  Through  the  recently  adopted  European 
Democracy Shield 11, the EU is intensifying its efforts to scale up capacity-building and support 
coordinated  action  to  counter  FIMI  and  disinformation  campaigns.  These  activities  will  be 
facilitated by the new European Centre for Democratic Resilience. 

Moreover, the European Digital Media Observatory (EDMO) and its national and regional hubs 
are promoting fact-checking and media literacy across the eastern border. A new EDMO hub – 
FACT (fighting against conspiracies and trolls) – has been set up to support Ukraine and Moldova 
as well as the Member States most exposed to Russian information manipulation. Erasmus+ and 
Creative  Europe  are  developing  digital  literacy,  civic  engagement  and  cultural  cooperation 
projects. 

The Connecting Europe Facility (CEF) Transport has mobilised EUR 9.1 billion to support 
the eastern border regions through strategic connectivity and security investments. This includes 
accelerated Trans-European Transport Network (TEN-T) cross-border links along the Baltic Sea-
Black Sea-Aegean Sea corridor and North Sea-Baltic corridor, including EUR 800 million for dual 
use infrastructure. Investments in Finland and the Baltic states are also supporting development of 
the European standard gauge to improve military mobility and strengthen economic integration. 

11 JOIN (2025)791. 

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While connections with Russia and Belarus have been downgraded, the EU has strengthened the 
connectivity and integration of the eastern border regions within Europe as well as improved cross 
border  connectivity  with  Ukraine  and  Moldova  with  EUR  1.36  billion  provided  to  regions 
bordering these candidate countries. 

As  part  of  the  above  mentioned  support,  cohesion  policy  programmes,  combined  with  CEF 
Transport, have also contributed to the EU Solidarity Lanes initiative, a lifeline for Ukraine’s 
economy,  by supporting  key infrastructure in  EU Member States  with  nearly EUR 2 billion to 
strengthen cross-border road and rail connectivity, including Danube navigability and increased 
capacity at key border crossings and ports such as Constanța. In  addition, the Baltic-Black Sea-
Aegean  corridor  represents  a  strategic  extension  of  the  TEN-T  towards  Ukraine  and  Moldova, 
supporting their gradual integration into the Union’s transport and logistics system. 
In the area of energy, CEF supported Member States on the eastern border 12 with EUR 3 billion 
since  2014. Through  support  to 57 Projects  of  Common  Interest,  CEF  has  contributed 
significantly to enhance the connectivity of the eastern border regions. 

The  EU4Health  programme  supports  the  eastern  border  regions’  resilience,  including  by 
improving healthcare for displaced Ukrainians and advancing health emergency preparedness and 
cross-border threat response. 

The  Union  Civil  Protection  Mechanism,  notably  through  the  Emergency  Response 
Coordination Centre, supports and complements the effort of its Member States, throughout all 
the disaster risk management cycle (prevention, preparedness and response) in the event of both 
natural and man-made crises.  

Stepping up our support to the eastern border regions 

These  efforts  have  laid  important  groundwork,  but  as  the  situation  evolves,  continued  and 
stronger action remains essential for ensuring the stability and prosperity of our eastern border 
regions. 

Further action is needed in five key areas: (i) security and defence; (ii) securing investment; (iii) 
leveraging the regions’ local strengths; (iv) improving connectivity; and (v), focusing on people, 
as the resilience of any region lies in the strength of its communities. 

1. Security and resilience – to protect, deter and reassure 

The growing number of hostile incidents in EU territory demonstrates the persistence of hybrid 
threats and security gaps. The increasing frequency of incidents affecting critical infrastructure, 

12 Finland, Estonia, Latvia, Lithuania, Poland, Slovakia, Hungary, Romania, Bulgaria. 

6 

 
 
 
 
 
 
including  harmful  interference  affecting  GNSS  and  the  radio  spectrum,  underline  the  need  to 
ensure its protection and fast repair, while integrating resilience requirements when designing new 
infrastructure. In this context, the Joint Communication Preserving Peace – Defence Readiness 
Roadmap 2030 13 sets out clear objectives and milestones to achieve defence readiness by 2030, 
as outlined in the White Paper for European Defence.  

Two of its  flagship initiatives  – the Eastern Flank Watch  and the European Drone Defence 
Initiative  –  have  the  objective  of  integrating  air  defence,  counter-drone  systems,  ground  and 
maritime security measures and situational awareness to build a comprehensive European border 
defence capability combining civilian-military tools in close cooperation with NATO. The Eastern 
Flank Watch will include real-time space surveillance to detect movements of hostile forces and a 
European  Drone  Defence  Initiative  and  European  Air  Shield  to  protect  Europe’s  sky,  directly 
benefitting the security of the eastern border regions and the whole Union.  

 Furthermore,  the  Action  Plan  on  Drone  and  Counter-drone  Security  addresses  the  threats 
posed by drones – airborne (including balloons), maritime surface, underwater or terrestrial, which 
pose significant challenges for the protection of external borders, critical infrastructure and public 
spaces.  It  aims  to  enhance  future  capabilities  of  law  enforcement,  specialised  counter  drone 
training, a drone incident platform, as well as pooling and sharing of resources. The action plan 
also includes several funding opportunities for drone and counter-drone capabilities and a specific 
focus on defence readiness. 

EUR 150 billion  in  loans  have  been  made  available  to  interested  Member  States  under  the 
Security  Action  for  Europe  (SAFE)  financial  instrument.  19 Member  States  have  expressed 
interest and submitted related investment plans. This includes all nine Member States along the 
EU’s eastern border, which have been tentatively allocated more than 65% of the total amount. 
Given the importance of the eastern border regions for EU security, they should be prioritised in 
the  development  of  a  resilient  regional  defence-industrial  ecosystem,  capable  of  scaling-up 
production and capacity in response to evolving security needs. 
The  proposed  military  mobility  package 14  will  improve  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  the 
Union’s  eastern  border  regions  and  beyond.  These  efforts  will  help  reinforce  the  resilience  of 
eastern  border  regions,  and  improve  their  connections,  strengthening  European  security  and 
defence. Together with EU Member States, critical bottlenecks (‘hotspots’) will be identified along 
the EU Military Mobility corridors short term investments prioritised. The military mobility strand 
of the Connecting Europe Facility within the multiannual financial framework (MFF) 2028-2034 
15 proposes a tenfold increase to support dual-use investments and digital infrastructure for military 
transport.  

Additionally, the proposed funding for migration, border management and internal security 
has also been increased threefold as part of the MFF 2028-2034. This increase reflects the unique 
challenges, faced by the Member States bordering Russia and Belarus to manage migration flows 
and secure the EU’s external borders.  

Moreover, in light of the escalating threat environment, there is a need to develop a comprehensive 
plan to prevent and counter the intensification of Russian hybrid warfare against the EU across 
terrestrial, aerial,  maritime, and digital domains.  All  these objectives  and  security concerns  are 
equally critical across the Baltic Sea and the Black Sea regions, given the interconnected prosperity 
and security continuum between them, as highlighted in the new strategy for a stable and secure 

13 JOIN (2025) 27 final. 
14 JOIN (2025) 846 final. 
15 COM (2025) 547 final. 

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Black  Sea  region  16.  The  Baltic  Sea  region  is  a  strategic  and  crucial  area  for  the  security  and 
defence of the EU. It constitutes an essential part of NATO’s collective defence architecture and 
plays a key role as a maritime, energy and infrastructure corridor. The Baltic Sea region remains 
particularly exposed to the Russian hybrid warfare activities, which require enhanced resilience 
and coordinated EU responses. 

The Commission will: 

•  support  Member  States  in  developing  the  Eastern  Flank  Watch,  the  European  Drone 
Defence  Initiative,  the  European  Air  Shield  and  the  European  Space  Shield  directly 
benefiting the security of the eastern border regions, with a view to achieving the ambitious 
milestones set out in the Defence Readiness Roadmap; 

•  develop  an  action  plan  of  measures  aimed  at  preventing  and  countering  the  escalation  of 
Russian hybrid warfare against the EU in terrestrial, aerial, maritime and digital domains, 
including by using the potential of the respective funding programmes in those areas; 
focus on improving military mobility in the EU, including in the eastern border regions, by 
supporting the development of dual-use infrastructure; 

• 

•  assess  the  possibility  of  higher  EU  support  rate  and  pre-financing  rates  for  eastern  border 

• 

regions for military mobility purposes; 
identify,  in  close  cooperation  with  the  Member  States,  targeted  short-term  investments 
(‘hotspots’) to be implemented by Member States as a matter of priority along the EU military 
mobility corridors of critical importance in eastern external borders and regions;  

•  work  closely  with  Member  States  to  ensure  the  effective  use  of  the  increased  funding  for 
migration, coordinated customs controls, border management and internal security, with 
a particular focus on Member States facing unique security challenges and assess whether that 
increased funding appropriately addresses the specific needs of the eastern border regions; 
in  line  with  the  EU  Preparedness  Union  strategy 17,  strengthen  crisis  preparedness  in  the 
eastern border regions to protect populations, economies, industries, and ensure the resilience 
and  functionality  of  critical,  defence  and  dual-use  infrastructure,  including  in  healthcare 
systems. Resilience considerations should be integrated into and mainstreamed across the EU 
eastern border regions initiatives, applying the principle of ‘preparedness by design’; 

• 

•  step  up  efforts  together  with  Member  States  to  fight  illicit  imports  of  tobacco  and  tobacco 

related products from third countries. 

In that regard, the Commission: 

•  will support cross-border areas to form resilience clusters that can pool resources, share best 
practice and collaborate on disaster preparedness, crisis management and long-term resilience;  
•  stands ready to deploy response capacities, including rescEU ones, through the Union Civil 

• 

• 

Protection Mechanism, to the most affected eastern border regions; 
invites  the  eastern  border  regions  to  direct  investment  towards  the  deployment  of  ground 
navigation  infrastructure  to  reinforce  resilience  to  interference  and  the  deployment  of  fibre 
optic networks to connect to the EU-wide services critical infrastructure and industries within 
the region; 
invites Member States to use capabilities, including EU-funded, to prevent and counter hybrid 
threats,  including  the  European  Centre  of  Excellence  for  Countering  Hybrid  Threats 
integrating results of the EU-funded network EU-HYBNET; 

•  will facilitate the development in the eastern border regions of strategic hubs for augmented 

regional space services, through the Union’s investment in the EU IRIS² system; 

16 JOIN (2025) 135 final. 
17 JOIN(2025) 130 final. 

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•  stands prepared to strengthen secure connectivity through IRIS² including the reinforcement 
of  its  Arctic  coverage,  and  to  accelerate  the  Earth  observation  governmental  service  to 
ensure space-based geo-intelligence including dedicated European capacities and pooling and 
sharing of national capacities; 

•  stands  ready  to  support  the  setting-up  of  the  EU  Black  Sea  Security  Hub,  aiming  at 

strengthening the region’s security and resilience on the short and long term. 

2.  Growth  and  regional  prosperity  –  fostering  access  to  financing,  innovation,  technology 
and SME development 

Regions along the EU’s eastern borders face mounting economic pressures, in addition to existing 
economic development challenges 18. They need to cope with significantly reduced cross-border 
trade and tourism flows, disrupted supply chains and declining investment confidence. In addition, 
they face stronger pressure to direct more resources into security and defence than other parts of 
Europe.  Business  operators  perceive  these  regions  as  high-risk,  making  loans  and  investment 
more costly. In addition, many municipalities have limited financial resources, making it difficult 
to  finance  development  projects  and  even  to  provide  essential  services.  As  confirmed  by  the 
responses  to  the  call  for  evidence,  access  to  finance  has  been  identified  as  one  of  the  most 
immediate challenges. 

Despite  these  challenges,  the  eastern  border  regions  hold  significant  potential  for  growth.  As 
gatekeepers  at  the  EU’s  eastern  frontier,  they  can  host  critical  logistical  and  defence 
infrastructure  while  capitalising  on  natural  resources  and  skilled  workforces.  Focusing  on 
defence technology and innovation, renewable energy and the bioeconomy can attract targeted 
investment, while tourism, culture and the creative sectors and industries can help rebrand and 
diversify local economies. Rule of law and high-quality governance are prerequisites for unlocking 
these opportunities and ensuring sustainable growth. 

The  evolving  security  landscape  has  created  new  opportunities  for  example  for  investment  in 
dual-use goods. Industries focusing on cybersecurity, surveillance technology, energy security, 
and transport infrastructure are increasingly seen as strategic sectors for regional development 19. 

In particular, the drone industry can play a key role in this growth, with applications in border 
surveillance,  search  and  rescue  operations,  and  environmental  monitoring.  Moreover,  the 
development  of  counter-drone  technologies  can  provide  a  new  opportunity  for  innovation  and 
entrepreneurship. 

from 

As a result of EU cohesion policy support, the eastern border 
regions boast many inspiring examples. 
The cutting edge NEO factory in Narva (Estonia), supported 
by  EUR 14.5 million 
the  JTF,  started  producing 
permanent  magnets  that  are  essential  for  Europe’s  net-zero 
industry and strategic autonomy. 
A  former  shopping  centre  built  for  tourists  from  Russia  in 
Imatra,  South  Karelia,  Finland,  is  being  transformed  into  a 
manufacturing  production 
for  high-tech  green 
technologies, supported by EUR 2 million from the JTF. 

facility 

18 GDP per capita in the  eastern border regions is 12 to 21% lower than in the rest of the same country (excluding the capital 
region). 
19 For example the ResilEast is a pilot project proposing a regional development initiative designed to strengthen the resilience, 
security, and economic vitality of EU eastern border regions through an integrated approach that combines energy infrastructure, 
defence readiness, and sustainable economic growth. It is envisioned as a pilot project for the broader RESIL EU concept, where 
Europe’s border regions act as pioneers in building new sources of growth and competitiveness across the continent. 

9 

 
 
 
 
is  emerging 

Līvāni in Latgale region has emerged as a Latvian fibre optic 
valley,  with  several  high-tech  companies  operating  in  the 
sector. 
A  strong  defence  cluster 
in  Šalčininkai 
(Lithuania), with a EUR 540 million loan from the European 
Investment Bank (EIB) Group. 
The  Interreg  Lithuania-Poland  cross-border  project  is 
strengthening  policy  and  public  cooperation  to  improve 
preparedness for emergencies and wartime scenarios. 
With  EUR 10 million  from  the  European  Development  Fund 
(ERDF) Podkarpackie in Poland will support the creation of 
‘Drone  Valley’  –  the  country’s  first  dual-use  competence 
centre for drones. 
The Košice Innovation Centre in Eastern Slovakia, developed 
with EUR 8.2 million funding from  ERDF contributes to the 
innovation potential of the whole region. 
In  Szeged,  EUR  26  million  from  the  Cohesion  Fund  helped 
transform the city’s heating network from gas to geothermal, 
demonstrating  the  geothermal  energy  potential,  including  in 
the region bordering Ukraine. 
In Iași (Romania), the building of INOVA a+ Research Centre, 
supported  by  EUR  75  million  from  the  ERDF,  will  boost 
research, production capacity, and supply security for critical 
medicines, vaccines and antibiotics. 
In Kazanlak (Bulgaria), EUR 43 million funding from the Just 
Transition  Fund  is  building  on  the  high-skilled  workforce 
around Stara Zagora to diversify the economy away from coal 
and develop a Centre of Excellence for Defence R&D paving 
the  way  to  a  regional  hub  serving  both  defence  and civilian 
markets. 
Stronger  links  between  academia,  business  and  civil  society  are  essential  to  maximise  this 
potential.  Regional  actors  should  work  together  to  design  smart  specialisation  strategies  that 
combine  their  unique  competitive  advantages  with  new  emerging  fields  of  bioeconomy, 
sustainable agriculture, digital technologies and eco-tourism, while also tapping into partnerships 
with vocational education and training (VET). 

Educational  institutions  hold  significant  potential  as  drivers  of  innovation  and  key  engines  of 
regional economic growth. In 2025, Riga Technical University (RTU, Latvia), Tallinn University 
of Technology (TalTech, Estonia), and Kaunas University of Technology (KTU, Lithuania) signed 
a memorandum of understanding to foster strategic cooperation in defence and security research 
and innovation to pool their expertise to jointly engage in major international R&D initiatives and 
strengthen ties with industry.  

In  Finland, Savilahti ecosystem  brings  together  Kuopio  University  Hospital,  the  University  of 
Eastern  Finland,  Savonia  University  of  Applied  Sciences,  Savo  Vocational  College,  several 
research institutes, the KPY Novapolis business park, and more than 200 companies. Together, 
they provide a platform for growth, development, experimentation, and innovation.  

Under  the  Strategic  Technologies  for  Europe  Platform  (STEP),  Romania  will  finance  EUR 
77 million of investments in technology upgrades in emissions trading system installations in the 
clean  and  resource  efficient  technologies  sector,  notably  for the  transformation  of  the  existing 
steelworks in Galați.  

10 

 
 
As part of the MFF 2028-2034 package, the national and regional partnership (NRP) plans 20 
will provide comprehensive and integrated support to Member States and regions facing the dual 
challenge  of  boosting  security  while  supporting  their  economies  and  people.  When  submitting 
NRP plans, Member States will demonstrate how they contribute to reducing economic, social and 
territorial disparities, including by focusing on the specific needs and challenges of their eastern 
border  regions,  particularly  in  the  areas  of  security,  border  management  and  economic 
development 21. Moreover, they will need to assign territorial codes that will allow investments in 
those regions to be tracked. 

The Commission will prioritise investment in the eastern border regions by: 

•  Setting  up  the  EastInvest  facility,  a  dedicated  financing  platform  for  eastern  border 
regions,  bringing  together  the  EIB  Group,  international  financial  institutions  and  several 
national  and regional  promotional banks of the Member States concerned. The  facility  will 
address  investment  needs  identified  in  the  development  strategies  of  these  regions  through 
targeted lending support by participating institutions, including the EIB Group, the European 
Bank for Reconstruction and Development (EBRD), the Nordic Investment Bank (NIB) 
and  the  Council  of  Europe  Development  Bank  (CEB),  which  may  be  provided  at  more 
favourable conditions, for example if combined with cohesion policy financing instruments. 
The  establishment  of  a  dedicated  platform  will  allow  for  better  coordination  among  the 
relevant  investors,  ensure  high  complementarity  and  synergies  of  their  interventions  in  the 
affected eastern border regions, while respecting the mandates and comparative advantages of 
the actors involved. To that end, the EIB Group, EBRD, CEB and the NIB aim to provide at 
least EUR 28 billion in 2026-2027 in private and public investments in the affected Member 
States,  leveraging  in  turn  further  private  financing.  EastInvest  will  also  serve  to  coordinate 
lending  and  advisory  support,  including  to  local  public  authorities,  in  the  eastern  border 
regions. 

•  Assessing – as part of its 2026 review of the General Block Exemption Regulation whether 
amendments are required to the State aid rules to address the specific challenges of the eastern 
border regions.  
In the context of the regional aid guidelines, the Commission will explore the need to maintain, 
beyond  2027,  the  existing  flexibilities  for  STEP technologies  which  are  crucial  to  building 
resilience. 

• 

•  Reviewing how the eastern border regions can best benefit from the opportunities offered by 
the upcoming European Competitiveness Fund 22, in order to bring innovation and industrial 
transformation  closer  to  these  regions,  notably  in  agriculture,  bioeconomy,  the  defence 
industry and the resilience of supply chains. 

•  Within the future European Competitiveness  Fund, and building on the InvestEU Advisory 
Hub, offering targeted advisory support to public and private entities in eastern border regions 
– including national, regional and local authorities – to facilitate access to financing and to 
support the development of a pipeline of investment projects.  

•  Working  with  Member  States  under  the  current  MFF  to  set  up  simplified  forms  of 
reimbursement (such as vouchers or other forms of simplified cost options) to facilitate access 
to  funding  for  micro  and  small  enterprises  in  the  eastern  border  regions.  Additionally, 
explore in the context of the implementation dialogues further simplification measures for the 
benefit of these regions. 

•  Promoting  the  creation  of  clusters  in  the  eastern  border  regions,  including  through  the 
European Cluster Platform 23, to foster local innovation ecosystems, collaboration among small 
and medium-sized enterprises and access to EU funding opportunities. 

20 COM(2025) 565 final/2. 
21 Article 22 of the NRPP proposal (COM(2025) 565 final). 
22 COM(2025) 555 final. 
23 https://www.clustercollaboration.eu/. 

11 

 
 
 
• 

Increasing  its  cooperation  with  the  World  Bank  Group  under  the  Catching-up  Regions 
Initiative in the Baltic states to provide municipalities with expertise and help develop projects 
for  business  retention  and  expansion,  human  capital  development  as  well  as  capacity 
building, in close cooperation with local stakeholders. This targeted assistance will be extended 
to  the  most  affected  eastern  border  regions  in  Poland  and  Finland  to  support  economic 
diversification, expanding market access for local companies, workforce upskilling and foreign 
direct investment.  

•  Ensuring that the challenges and needs of the eastern border regions regarding investments and 
reforms  are integrated into  the reference policy  frameworks of future  national  and regional 
partnership plans under the new MFF. Moreover, when preparing the guidance on the ‘Do no 
significant harm’ principle for the next MFF, the Commission will take into account territorial 
specificities  and  challenges  of  the  eastern  border  regions  ensuring  the  principle  is  applied 
proportionately. Furthermore, given the heightened security risks in the eastern border regions, 
including the increased risk of conventional military threats, the guidance will further detail 
the scope of the exceptions to security and defence, in particular when it comes to dual-use 
projects and those with a civil preparedness dimension. 

In addition, the Commission calls on Member States to: 

•  make  use  of  financial  instruments  under  their  cohesion  policy  envelopes  to  create  more 
favourable lending conditions in the eastern border regions and contribute to de-risk private 
financing; 

•  ensure  that  the  challenges  and  opportunities  of  the  eastern  border  regions  are  properly 

• 

considered when programming future national and regional partnership plans; 
increase incentives for economic activity in these regions, such as targeted tax measures and 
State-aid-compliant  subsidies  for  companies  already  established  or  to  incentivise  new 
investments in the eastern border regions; 

•  explore the potential benefits of setting up new special economic zones in the eastern border 
regions, and of extending the list of facilities under the existing ones subject to the State aid 
rules. 

3. Building on local strengths – bioeconomy, energy, environment, agriculture and skills 

The eastern border regions are rich in untapped natural resources, including wood, biomass and 
rare earth elements, offering significant potential for the growth of bio-based industries, renewable 
energy development, and mining and processing sectors. 

The  forest  sector,  by  using    the  currently  untapped  resources  sustainably,  has  the  potential  to 
develop  competitive,  market-based  value  chains  for  carbon  capture  or  innovative  bio-based 
materials  (e.g.  bio-based  plastics  and  polymers,  fibre-based  packaging,  bio-based  textiles,  bio-
based  chemicals,  and  bio-based  construction  products).  These  solutions  can  reduce  emissions, 
foster innovation, create green jobs and revitalise rural areas. 

Finland, with significant reserves of lithium, cobalt and nickel, is already a key player in the EU’s 
push to secure supplies for batteries and renewable energy technologies. Estonia is also positioned 
to contribute significantly to the EU’s Critical Raw Materials objectives, having already opened a 
permanent magnet plant. Poland, a major producer of copper and with potential for processing 
rare earths, is expanding its exploration of lithium, while Romania has promising magnesium 
and copper deposits. Steel accounts for more than half of Slovakia’s eastern region’s industrial 
production  in  addition  to  a  variety  of  other  minerals,  such  as  antimony,  gold,  silver,  uranium, 
molybdenum  and  magnesite.  The  above-mentioned  also  have  a  growing  focus  on  sustainable 
mining  practices,  positioning  themselves  as  environmentally  conscious  suppliers  of  key 
materials.  

12 

 
 
 
Maintaining  the  potential  of  agricultural,  fisheries  and  aquaculture  production  along  the 
eastern border and ensuring its continuity via generational renewal and further support to rural 
areas is  key  for the vitality  of these regions. Securing forestry and  agricultural  production also 
contributes to food security and ensures a stable supply of raw materials for businesses in the 
area. To develop these initiatives, farmers in the eastern border regions may receive increased 
coupled income support 24. 

Environmental sustainability in EU border regions can be enhanced through collaborative efforts 
to  protect  natural  resources  and  foster  circular  economies,  ensuring  long-term  resilience  and 
ecological balance across diverse landscapes. Investments in efficient and circular water systems 
and  modern  wastewater  treatment  can  also  support  industry  and  agriculture,  and  increase 
operational continuity during crises. 

Strengthening the energy systems and unlocking the renewable energy potential of the eastern 
border regions is a critical component of Europe’s energy security. The lack of a robust grid in 
many eastern border regions reduces energy security and industrial development. Ensuring that 
renewable energy projects can be fully integrated into the electricity network will require strategic 
grid  investments  in  the  eastern  border  regions  of  for  example  the  Baltic  states  and  Finland. 
Following the synchronisation of the Baltic countries’ electricity systems with the European grid, 
further work is  needed to  fully integrate them  into the EU electricity  market. This  includes 
reinforcing  resilience  and  upgrading  existing  infrastructure,  improving  grid  flexibility  and 
enhancing connectivity with neighbouring countries. Moreover, additional gas storage, reverse-
flow  capacities,  grid  and  infrastructure  upgrades,  interconnectors  and  the  integration  of 
renewables  are  necessary  to  ensure  resilience  to  energy  disruptions  and  hybrid  threats. 
Accelerating the deployment of renewable energy, through streamlined and expedited permitting 
processes, can harness the vast potential of the eastern border regions 25. Local energy resilience 
can  also  be  increased  by  expanding  energy  communities.  These  communities  can  pool  local 
resources to produce renewable energy, thus reducing reliance on external sources, as well as build 
microgrids and energy storage systems, providing backup power during disruptions. 

The  eastern  border  regions  also  present  a large  potential  for  biomass  supply  for  the  EU 
bioeconomy, while also valorising residues and increase local circularity and resilience. They can 
support  the ReFuelEU Aviation  and FuelEU Maritime strategies  by  providing  the  feedstock  for 
advanced biofuel production, building on lead technologies such as biorefineries, fermentation and 
biogenic. 

By investing in on-farm or cooperative biogas installations, farmers can recycle manure, waste 
and  crop-residues  into  valuable  bioenergy  and  digestate,  which  itself  can  be  further  processed 
to bio-based  fertilizer.  This  helps  to  substitute  expensive  and  to a  large  extent imported  and 
fossil-based chemical fertilizers, and at the same time contributes to sustainability, energy security 
and energy affordability.  

The Commission will: 

•  speed up the integration of the Baltic states’ electricity systems with the European networks, 
including  reinforcing  resilience of  infrastructure and offshore grids, as  well as  cross-border 
hydrogen  infrastructure  such  as  the  Nordic-Baltic  Hydrogen  Corridor,  through  the  Baltic 
Energy Market Interconnection Plan High-Level Group; 

•  continue to support the implementation of priority cross-border infrastructure projects in 
the region, as also reflected in the Energy Highways identified as part of the European Grids 

24 Under the CAP MFF proposal, Member States have the possibility to increase their allocation to coupled income support, usually 
limited to 20% of Union contribution to specific interventions, by up to 5% provided that this additional financial allocation is 
targeted to specific priorities including, in particular, for farmers in the eastern border regions. 

25 Untapped potential for renewable energy from wind, solar and hydropower. 

13 

 
 
 
Package, including through the Central and South-Eastern Europe Energy Connectivity High-
Level Group;  

•  continue to support projects of common interest and projects of mutual interest with third 

countries including via the CEF; 

•  support  circular-industry  initiatives,  including  industrial  symbiosis  valleys  and  regional 

bioeconomy hubs in the eastern border regions, building on the Bioeconomy Strategy; 

•  support  the  production  of  biogas  and  biomethane  production,  in  line  with  REPowerEU 
targets and the lead market for biobased-fertilisers outlined in the Bioeconomy Strategy, that 
recycle agricultural and forestry residues, as well as local organic waste, into digestate and bio-
based fertiliser; 

•  support strategic projects under the Critical Raw Materials Act, building on RESourceEU 
Action Plan and the region's supply potential for critical  raw materials, through  Innovation 
Fund calls and Cohesion investments via STEP; 

•  promote  the  eastern  border  regions  specific  activities  within  the  Rural  Pact,  such  as 
networking and capacity building, to address the unique challenges faced by these regions; 
•  encourage the participation of young people in farming in the eastern border regions via the 
EU strategy for generational renewal in farming 26 and continue to support the development 
of rural areas and farming via the future national and regional partnership plans; 

•  address the key challenges facing tourism in the eastern border regions in the upcoming EU 
strategy for sustainable tourism, helping the adoption of sustainable models, strengthening 
resilience and restoring international confidence through targeted promotion efforts. 

The Commission invites Member States to: 

• 

• 

improve energy planning in creating a framework to better coordinate investment pipelines 
to  speed  up  the  green  transition,  resilience  and  grid  integration  across  the  eastern  border 
regions; 
further  reinforce  energy  security  by  fast-tracking  interconnectors,  LNG/biogas  capacity, 
electricity grid resilience and energy storage, including creating strategic fuel reservoirs in the 
eastern  border  regions,  and  integrate  these  investments  into  the  future  revision  of  Member 
States’ national energy and climate plans; 

•  deploy  renewable  energy  projects  and  modernise  district  heating  in  the  eastern  border 

• 

regions; 
include  in  their  Social  Climate  Fund  investments  measures  to  reduce  energy  poverty 
including  in  the  eastern  border  regions  to  the  benefit  of  vulnerable  households  and  micro-
enterprises. 

4. Connectivity – to connect people and support growth 

Russia’s war of aggression against Ukraine has prompted a strategic decoupling of transport links 
with  Russia  and  Belarus,  including  by  closing  the  airspaces  of  the  adjacent  countries,  directly 
impacting  the  eastern  border  regions.  Russia  and  Belarus  have  been  removed  from  the  TEN-T 
maps, and cross border connections with these countries have been downgraded. The shift in trade 
dynamics following the closure of borders and economic sanctions has underlined the importance 
of securing strong connections to international markets, particularly through alternative land, rail, 
and maritime routes.  

The EU has taken decisive steps to adjust and strengthen the TEN-T corridors, prioritising the 
full integration of the eastern border regions into the EU internal market and security framework. 
Connectivity in the eastern border regions within the EU has been significantly strengthened, by 

26 Strategy for generational renewal for agriculture (COM/2025/872 final). 

14 

 
 
 
 
introducing new corridors alignments to enhance their integration into the EU transport market as 
well as strengthening cross border connectivity with Ukraine and Moldova. 

The  integration  of  the  eastern  border  regions  into  the  EU  networks  by  removing  barriers  and 
developing the European standard gauge infrastructure in the Baltic states and Finland represents 
a strategic investment in EU cohesion, economic resilience, and security preparedness. At the same 
time,  strengthening  the  economic  and  security  resilience  of  the  Danube/Black  Sea-Aegean  Sea 
remains equally important for Europe’s overall security on the eastern flank.   

At local level, adequate access to public transport and on demand transport services is  needed 
to make sure people can reach their jobs and public services in the eastern border regions. 

The Commission will: 

in 

•  boost  cooperation 

infrastructure  networks, 

relevant  national 
administrations  in  line  with  the  Trans-European  Transport  Network  (TEN-T)  European 
Transport  Corridors,  including  extensions  to  Ukraine  and  Moldova,  as  well  as  increase 
capacity in the Baltic ports and support the development of the Rail Baltic/TEN-T corridor and 
north-south military mobility; 

involving 

the 

•  support and facilitate integration of the eastern border regions railway systems within the TEN-
T and CEF cooperation frameworks, both with the rest of the EU as well as with Ukraine and 
Moldova,  to  improve  military  mobility  and  security,  and  create  additional  economic 
opportunities. 

The Commission invites Member States to: 

•  upgrade infrastructure to increase regional competitiveness and security, prioritising quality 
road and rail connections with major urban centres, including where they can serve dual-use 
purposes, prioritising TEN-T corridors; 
facilitate implementation of critical ongoing major cross-border projects, such as Rail Baltica,  
which are essential for the connectivity and security of the eastern border regions; 

• 

•  ensure  the  timely  implementation  of  the  joint  Action  Plan  on  enhanced  cooperation  in  the 

framework of Baltic Sea-Black Sea-Aegean Sea corridor 27; 

•  make  use  of  future  national  and  regional  partnership  plans,  the  Connecting  Europe 
Facility and the European Competitiveness Fund to ensure timely implementation of TEN-
T and EU military mobility corridors; 

•  make use of Social Climate Fund allocations to reduce transport poverty in the eastern border 
regions, e.g. by investing in sustainable public transport, social electric vehicle leasing, public 
transport, shared mobility and on-demand transport. 

Digital  connectivity  between  the  eastern  border  regions  and  the  rest  of  the  EU  is  crucial  for 
economic  integration,  cross-border  trade,  communication  and  innovation,  as  well  as  for 
cyber-security and protection from hybrid attacks. Yet the eastern border regions continue to lag 
significantly  behind  the  rest  of  the  EU,  with  gaps  in  broadband  coverage,  slow  internet  speed, 
limited digital public service delivery and scarce digital skills. These shortcomings hinder local 
companies,  limit  access  to  education,  training  and  healthcare,  and  weaken  cross-border 
coordination. Targeted actions should ensure the availability of gigabit-capable broadband and 5G 
coverage  including  in  rural  communities  and  along  border  corridors,  as  well  as  of  critical 
infrastructures such as backbone networks. 

27 Memorandum of understanding on enhanced cross-border cooperation in the framework of the Black Sea – Aegean Sea 
Corridor Platform (December 2025).  

15 

 
 
 
The Commission will: 

•  provide funding on a competitive basis under the second Connecting Europe Facility digital 
work  programme  2024-2027  to  support  5G  digital  connectivity  within  the  EU  as  well  as 
between the EU and non-EU  countries, with a focus on backbone networks; 
facilitate  technical  assistance  to  public  authorities  through  the  European  Broadband 
Competence  Offices  Network  to  support  the  rollout  of  fibre  and  5G  networks,  and  to 
companies through EDIHs to enhance the adoption of digital technologies. 

• 

The Commission invites Member States to: 

• 

integrate  the  specific  circumstances  of  the  eastern  border  regions  into  their  national  digital 
decade strategic roadmaps, ensuring that upcoming adjustments 28 focus on the regions unique 
challenges  and  priorities.  This  includes  improving  broadband  and  5G  coverage,  secure 
cross-border connectivity and access to digital public services;  

•  make full use of the RRF and cohesion policy programmes to close the digital divide to help 
create  new  opportunities,  strengthen  economic  resilience  and  improve  quality  of  life  in  the 
eastern border region. 

Cross-border  cooperation  has  long  been  a  vital  tool  for  fostering  regional  development  and 
economic growth in border regions. However, the breakdown of relations with Russia and Belarus 
has  disrupted  these  cooperative  frameworks.  As  a  result,  it  is  necessary  to  explore  alternative 
territorial cooperation initiatives that allow these regions to maintain and diversify connections, 
find new partners and set up new cooperation opportunities. 

As part of the 2028-2034 MFF proposal, the Commission has introduced a new Interreg-specific 
objective for ‘more resilient regions bordering Russia, Belarus and Ukraine’ 29. This proposal 
aims to give the Member States concerned and their regions full flexibility in exploiting territorial 
cooperation to address their most pressing challenges, including safety and civil preparedness, de-
population and disinformation. At the same time, regions bordering Russia and Belarus, which lost 
cross  border  opportunities  following  the  termination  of  programmes  with  those  two  hostile 
neighbours, will be better equipped to redirect their cooperation efforts westwards. For the regions 
bordering  Ukraine,  the  new  specific  objective  will  allow  an  increased  focus  on  addressing  the 
challenging conditions that currently prevail. The new specific objective will also make it possible 
for future transnational cooperation spaces to dedicate part of their funding to cooperation with 
Ukraine and Moldova. 

The Commission will: 

•  support the Member States concerned to prepare their future 2028-2034 Interreg chapters also 
taking into account north-south cooperation. If so decided by the Member States bordering 
Russia and Belarus, this could take the shape of a specific Interreg plan chapter dedicated to 
using the new specific objective to foster greater cooperation and learning opportunities among 
regions facing similar challenges. 

The Commission invites Member States to: 

•  make  full  use  of  the  recently  adopted  BRIDGEforEU  Regulation  30  to  help  resolve  cross-

border obstacles between regions in the eastern flank. 

28 Member States are requested to submit adjustments to their national digital decade strategic roadmaps in December 2026 
(based on Article 8 of the Decision (EU) 2022/2481 establishing the Digital Decade Policy Programme 2030).  
29 COM(2025) 552 final. 
30 Regulation (EU) 2025/925 of the European Parliament and of the Council of 7 May 2025 on a Border Regions’ instrument for 
development and growth (BRIDGEforEU). 

16 

 
 
 
5. People – regions are as strong as the communities living there 

The people of the eastern border regions have shown exceptional strength and adaptability in the 
face of adversity. Their continued resilience depends on community cohesion and preparedness 
to absorb shocks. Depopulation, ageing and low population density pose significant challenges. 

In addition, housing markets are stagnating, and low collateral values impede access to mortgages. 
This risks triggering a negative cycle of outmigration and declining attractiveness, which threatens 
the resilience of the EU’s eastern border (as evidenced by studies conducted by ESPON, the OECD 
and Interreg Europe). 

To counter these trends, Member States should strengthen place-based policymaking and multi-
level governance, empower regional and local authorities and civil society, while upholding good 
governance and the Rule of Law. 

Ensuring  the  provision  of  essential  and  social  services  is  crucial  for  the  well-being  of 
communities in border regions. However, the limited financial capacity of local governments, 
leave these regions with chronic shortages of education, training and care professionals and weaker 
infrastructure. This is further aggravated by an  ageing population and workforce. The situation 
requires targeted investment to ensure accessible and affordable social, health, child and long-term 
care services and infrastructure. In the context of escalating geopolitical tensions, mental health 
has emerged as  a  critical  concern,  with  increasing  levels  of  insecurity,  stress,  and  depressive 
symptoms posing major challenges. New approaches, such as telemedicine, digital consultation 
hubs  and  mobile  services,  show  considerable  potential  to  help  overcome  barriers  of  distance, 
providing access to remote areas. Social entrepreneurship can also revitalise the economy and 
improve social cohesion 3132. 

Moreover, many border regions are home to diverse minority groups; fostering their integration 
and inclusion is key to strengthening these areas. 

The Commission will: 

•  support the creation of an eastern border region community of practitioners to exchange best 

practices and preparedness solutions among municipalities; 

•  explore – together with Member States – how to facilitate municipalities’ access to critical 
equipment,  including  through  joint  procurement,  e.g.  emergency  communication  and 
broadcast  systems,  reserves  of  agri-food  products,  community  energy  projects  and  off-grid 
energy solutions; 

•  promote  community-led  local  development  initiatives,  including  LEADER,  engaging  the 
population  in  local  decision-making  and  finding  solutions  tailored  to  the  specific  regional 
needs, including youth retention and access to quality services for all. 

A skilled and adaptable workforce is essential for the eastern border regions to thrive. However, 
labour and skills shortages remain high. This includes key sectors such as healthcare and long-
term care, green industries and the digital economy. At the same time, the eastern border regions 
also report high numbers of young people not in employment, education or training. 

Addressing  these  challenges  requires  education  and  training  better  aligned  with  local  labour 
market  needs,  supported  by  partnerships  with  companies  and  stronger  science,  technology, 
engineering and mathematics education. Ensuring a smooth school-to-work transition, flexible 

31 ‘Baltics CuRI Forum: Social Enterprise for Regional Resilience’ organised by the World Bank Group and the Commission on 
17-18 September in Anykščiai, Lithuania. 
32 Developed under CuRI Slovakia in Prešov Region to increase the knowledge and awareness about social economy as instrument 
to address local challenges and its contribution to development and inclusive growth. 

17 

 
 
 
 
learning  options  and  the  full  implementation  of  the  Youth  Guarantee  will  help  retain  young 
talent. 

The Commission invites Member States to: 

•  scale up vocational education and training (VET) and re/upskilling including via the European 

Social Fund Plus, and through committing to the EU Pact for Skills; 

•  build  stronger  education-to-employment  links  through  Erasmus+  centres  of  vocational 
teacher  upskilling  and 

the  European  Alliance  apprenticeships,  VET 

excellence, 
research/innovation; 

•  prioritise  youth  retention  in  the  eastern  border  regions  through  education-to-employment 
pathways  and  by  setting  up  first-time  homebuyer  schemes  under  cohesion  policy 
programmes, offering low-interest loans to young professionals 33; 

•  support the eastern border regions’ cities and urban areas to apply for the upcoming European 

• 

Urban Initiative call, aimed at implementing the recently adopted Cities’ Agenda; 
foster cooperation between municipalities, including through pooling available resources and 
ensuring essential and social services for their communities; 

•  strengthen  civic  participation,  education,  volunteering,  media  and  financial  literacy, 
preparedness and  grassroots initiatives,  boosting  local  resilience, mutual  trust  and social 
inclusion; 

•  promote the socio-economic integration of nationals from non-EU countries and minorities 

in the eastern border regions by making full use of EU funding opportunities. 

Culture  fosters  trust  in  democratic  institutions  and  cohesion  and  should  remain  high  on  the 
political agenda of the eastern border regions. Youth participation in decision-making should be 
formalised,  while  schools  and  public  campaigns  targeting  all  population  segments  should 
strengthen critical thinking and media literacy. 

The Commission will: 

•  support  the  economic  resilience  of  the  media  sector  through  the  Media  Resilience 

Programme; 

•  promote the use of small-scale grants to support local NGOs in upholding digital and media 

literacy and to support arts and crafts initiatives; 

•  develop a peer-learning project to strengthen pupils’ civic engagement and sense of democratic 

citizenship through culture, both within and around schools; 

•  bolster efforts to improve citizens-centred communication and address risks posed by FIMI, 
which  are  particularly  acute  in  the  eastern  border  regions,  including  through  the  EDMO 
national or regional hubs, the new European Network of Fact-Checkers and the CAP Network 
for rural communities; 

•  support fact-checking organisations and local media to strengthen the information space on 

issues of particular relevance to rural communities within the eastern border regions 34. 

Way forward 

EU’s eastern border regions are not only gatekeepers of our security but also vital gateways for 
connectivity  and  economic  opportunity.  Strengthening  their  resilience  and  attractiveness  is  not 
only a question of solidarity; it is a crucial strategic investment in Europe’s  security, future 
stability, competitiveness and cohesion.  

33 Model for financial instruments and grants with co-financing from the EIBG and others for affordable housing. 
34 Information measures relating to the common agricultural policy programme (IMCAP). 

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Security and resilience are integral to the long-term sustainability of the eastern border regions. 
Strategic  investments  and  co-ordinated  governance  can  help  transform  security  challenges  into 
opportunities and prosperity and to ensure sustainable regional development. 

Through targeted EU and national policies, additional and integrated investments and empowered 
local governance, the EU can turn its frontier regions into resilient engines of sustainable growth 
and European unity and security. 

The needs and circumstances of the eastern border regions are unique. They will be integrated into 
relevant  future  policies  and  investments  and  reflected  in  funding  priorities  at  every  level  – 
regional,  national  and  European.  This  should  include  targeted  calls  for  proposals  and 
preferential treatment for the eastern border regions. 

The Commission will continue to work closely with national administrations and regions to further 
promote  place-based  approaches  and  multi-level  governance  ensuring  tailored,  effective 
solutions for these regions, making the most of the existing and future EU funds implementation 
structures ensuring that their unique needs are consistently addressed.  

Member  States  whose  regions  are  most  affected  by  the  current  security  environment  are 
encouraged  to  recognise  the  special  status  of  these  areas  in  their  own  national  and  regional 
development  strategies  and  planning,  including  territorial  cooperation.  In  this  context, 
dedicated  financial  resources  should  be  specifically  allocated  for  the  eastern  border  regions  to 
foster their economic development and promote resilience. 

This Communication serves as a starting point, laying the foundation for continued solidarity and 
efforts that will be adapted to address the evolving challenges and opportunities. 

Continuous  dialogue  will  be  necessary  to  align  EU,  national  and  regional  policies  so  that  they 
effectively  address  these  challenges  and  opportunities.  To  ensure  a  systematic  follow-up,  the 
Commission proposes to set up an annual high-level political dialogue to discuss EU policies 
and their contribution to the development and security of the eastern border regions. The first high 
level dialogue will be held on 26 February 2026.  

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