Overwegingen bij COM(2025)547 - Connecting Europe Facility for the period 2028-2034 - Hoofdinhoud
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| dossier | COM(2025)547 - Connecting Europe Facility for the period 2028-2034. |
|---|---|
| document | COM(2025)547  |
| datum | 16 juli 2025 |
(2) Efficient transportation of people 7 and goods is an essential pillar for the functioning of the Union, playing a crucial role in fostering competitiveness and economic growth, ensuring cohesion, and achieving climate and environmental objectives. The ability of citizens and goods to move freely and efficiently in a well-connected and complete single market enhances connectivity, ensures access to jobs and services, and supports local economies and trade. At the same time, a decarbonized and sustainable transport system is a condition to meet the Union´s climate goals and address the Union’s economy’s strategic and unsustainable dependence on fossil fuel. Effective and secure freight transport is indispensable for the supply of necessary goods to citizens, keeping our economy running and backing our military security. The Draghi report on the future of competitiveness of Europe 8 , recognises the importance of raising investments in transport infrastructure and emphasises the need for an integrated multimodal transport market as well as the strong demand for decarbonization and clean solutions. The Draghi report calls for boosting the digitalisation in the Union across key economic sectors, such as transport. The Letta report on the future of the internal market highlights the transport sector as a key area where deeper European integration is essential to fully unlock the potential of the internal market. The Letta report underlines notably the need to complete the TEN-T network and highlights the opportunities of a pan-European high-speed rail network to revolutionise European travel and catalyse Union integration. The Niinistö report on Europe’s civilian and military preparedness stresses the importance of dual-use transport corridors for military movements and supply chains and the resilience of the transport infrastructure to climate change and as well as the need for secure maritime supply routes used for the Union’s external trade.
(3) The Union should facilitate projects in disadvantaged, less connected, rural, insular, coastal, peripheral, congested, outermost or isolated regions so as to enable access to the Trans-European energy and transport networks while bringing benefits to the entire Union in terms of security, competitiveness and social, economic and territorial cohesion. Regulation (EU) 2024/1679 of the European Parliament and of the Council 9 identifies the infrastructure of the trans-European transport network, specifies the requirements to be fulfilled by it and provides for measures for their implementation. That Regulation provides for the completion of the core network of the trans-European transport network by 2030 and the extended core network by 2040 through the creation of new infrastructure as well as the substantial upgrading and rehabilitation of existing infrastructure. This will lead to a high-performing network for passengers and goods transportation.
(4) In order to achieve the objectives laid down in Regulation (EU) 2024/1679, it is necessary to financially support the development cross-border, including ports and their hinterland connections as well as the deployment of alternative fuels, and the elimination of missing links and to ensure, where applicable, that the actions supported by the Programme are consistent with the corridor work plans drawn up in accordance with Article 54 of Regulation (EU) 2024/1679 and with the overall network development regarding performance and interoperability.
(5) The Joint White Paper for European Defence Readiness 2030 10 recognised military mobility as an essential component of Union security and defence and stressed the Union added-value in supporting dual-use infrastructure for mobility. The Regulation (EU) 2021/1153 of the European Parliament and of the Council 11 included for the first time a dedicated financial envelope for the development of civilian-defence dual use transport infrastructure. It is essential that the Union’s transport infrastructure enables rapid and efficient movement of military personnel, material and equipment by air, land and waterborne. Accordingly, the infrastructure for all transport modes should to be upgraded to meet the military requirements. The Programme should seek complementarity with the specific activities supported under the European Competitiveness Fund (also with regard to Important Projects of Common European Interest (IPCEI)), notably aiming at strengthening Member State’s access to and availability of military mobility capabilities, and to support the development of digital solutions to facilitate the military mobility as well as measures supported under the National and Regional Partnership Plans.
(6) In the field of military mobility, the Programme aims to contribute to enabling transportation of military equipment and personnel across the EU at speed and scale, taking into account the military expertise at EU level. The Programme should be consistent with EU efforts to increase EU defence readiness as outlined in the Joint White Paper for European Defence Readiness 2030.
(7) The Union has developed its own space systems for Positioning, Navigation and Timing (PNT) (Galileo, EGNOS and LEO PNT), Earth observation and monitoring programme (Copernicus, EOGS) and secure connectivity (GOVSATCOM and IRIS2). They all offer advanced services which provide important economic benefits to public and private users. Therefore, any transport or energy infrastructure funded by the CEF, that makes use of PNT or Earth observations services, should be technically compatible with those systems. To ensure such compatibility, where relevant, the work programme can ensure that actions supported by the CEF that include PNT, connectivity or observation technology are technically compatible with the EU space systems.
(8) The PROTECT EU Strategy stresses that security is the bedrock upon which all our freedoms are built and builds on the consideration that security shall be mainstreamed in all EU policies.
(9) The expansion and upgrade of energy infrastructure is an essential condition for a genuine Energy Union that is complete and interconnected, ensuring the Union’s energy security and independence, energy affordability, industrial competitiveness, while meeting the Union’s climate and energy objectives towards 2030 and achieving climate neutrality by 2050. Energy grids are necessary for the uptake of additional generation of renewable energy, including offshore generation, for boosting industrial decarbonisation and electrification, and for ensuring a well-functioning and competitive internal energy market that delivers a secure and affordable supply of energy. The Draghi Report recognises also the importance of raising investments in energy infrastructure. The Draghi report pointed in particular to investment in energy grids and the need to rapidly increase the deployment of cross-border energy infrastructure to ensure the integration of renewable energy into the European system and decarbonise Europe’s industry. In the Clean Industrial Deal 12 and the Action Plan for Affordable Energy 13 , the Commission underlined the crucial role of completing the Energy Union by investing in energy infrastructure and cross-border grids for safeguarding the competitiveness of European industry and the prosperity of people as well as for the affordability and security of energy supply. The Action Plan for Affordable Energy indicates that every person, community, and business should benefit from the clean transition. According to the Monitoring Report on electricity infrastructure 14 of the Agency for the Cooperation of Energy Regulators, cross-border capacity needs will amount to 66 GW by 2030, of which 32 GW currently remain unaddressed. The support of the Programme to cross-border projects will play an important part in addressing this gap.
(10) Special consideration should be given to cross-border energy interconnections, including complex projects such as hybrid interconnectors, including those necessary to reach the 15 % electricity interconnection target for 2030 established by Regulation (EU) 2018/1999 of the European Parliament and of the Council 15 .
(11) Regulation (EU) 2022/869 of the European Parliament and of the Council 16 lays down guidelines for the timely development and interoperability of trans-European energy infrastructure. It provides for the identification of projects of common interest and of projects of mutual interest and determines the conditions for eligibility of these projects for Union financial assistance. However, given their cross-border nature, projects of common interest and projects of mutual interest not only create significant positive externalities and foster solidarity, but also entail specific challenges for project promoters, due to their multi-jurisdictional nature, coordination challenges and an often asymmetrical distribution of costs and benefits. They therefore require Union level support.
(12) In the field of energy, the Programme aims to contribute to the development of projects of common interest and projects of mutual interest, with a view to promoting energy market integration and interoperability of energy networks across borders. Furthermore, the Programme aims to facilitate decarbonisation, promoting energy efficiency and ensuring security of supply, and facilitating cross-border cooperation in the field of energy including renewable energy generation, as well as storage facilities that are not fulfilling the eligibility criteria of Regulation (EU) 2022/869. In doing so the interests of all stakeholders liable to be affected should be taken into account.
(13) Cross-border cooperation between Member States, or between Member States and third countries, in the field of renewable energy is key to achieve the Union’s objectives in terms of decarbonisation, competitiveness, completion of the internal energy market and security of supply in a cost-efficient and sustainable manner. The Programme aims to address a risk that cross-border cooperation will remain at a sub-optimal level in the absence of Union financial assistance.
(14) Cross-border projects in the field of renewable energy should provide cost savings for the deployment of renewable energy across the Union or other benefits for system integration, security of supply, competitiveness or innovation, in comparison to a similar project implemented by one of the participating Member States or third country alone. When selecting the projects, the Commission should particularly consider their contribution to the further integration of the Union internal energy market and endeavour to take, where possible, into consideration geographical balance. In case of grants for works, the applicant should demonstrate the need to overcome market failures or financial obstacles such as insufficient commercial viability, high upfront costs or the lack of market finance.
(15) The Programme should enable a transfer of funds to the Union renewable energy mechanism established by Article 33 of Regulation (EU) 2018/1999 17 , to ensure contribution to the enabling framework set out in Article 3(5) of Directive (EU) 2018/2001 of the European Parliament and of the Council 18 . This transfer can also concern projects that fall under the definition of cross-border projects in the field of renewable energy. Where relevant, the Commission should endeavour to prioritise such financial support for projects that enhance the further integration of the Union internal energy market, including cross-border projects in the field of renewable energy.
(16) Synergies between the development of trans-European networks in transport and energy and cross-border projects in the field of renewable energy with strong cross border impact supported by CEF, and transport and energy projects in the scope of the National and Regional Partnership Plans, the Framework Programme for Research and Innovation, and the European Competitiveness Fund should be ensured. Synergies could also imply support for Important Projects of Common European Interest (IPCEI) focussing on cross-border infrastructure in the transport and energy sector.
(17) The Programme should also seek coherence with actions financed under Global Europe. It is important that the trans-European networks for transport and for energy are well connected to third countries. The respective policy frameworks identify projects of common interest between Member States and third countries, or projects of mutual interest, which are the priority for the transport and energy connections from and to these third countries. For these projects, the support provided under the Programme should be closely coordinated with support provided under the Global Europe. In the field of transport, the cross-border sections listed in the Annex to this Regulation should be prioritised.
(18) In a rapidly changing economic, social and geopolitical environment, recent experience has shown the need for a more flexible multiannual financial framework and Union programmes. To that effect, and in line with the objectives of the CEF, the funding should duly consider the evolving policy needs and Union’s priorities as identified in relevant documents published by the Commission, in Council conclusions and European Parliament resolutions while ensuring sufficient predictability for the budget implementation.
(19) To ensure consistency, the budgetary guarantee and financial instruments under the Programme, including when combined with other forms of non-repayable support in blending operations, should be implemented in accordance with the applicable rules of the ECF InvestEU Instrument and GE delivery mechanisms through agreements concluded for that type of support under the ECF InvestEU Instrument and GE delivery mechanisms.
(20) Where Union support under the Programme is to be provided in the form of a budgetary guarantee or a financial instrument, including where combined with non-repayable support in a blending operation, it is necessary that such support is provided exclusively through the ECF InvestEU Instrument and GE delivery mechanisms in accordance with the applicable rules of the ECF Investment Instrument and GE delivery mechanisms. In the case of ECF InvestEU Instrument delivering the objectives of this Programme, advisory support should be available to all Member States at their request. Such support could cover capacity building, support for project identification, preparation and implementation, as well as advice on financial instruments and investment platforms.
(21) The Programme should optimise the use of available funding through close monitoring of the funding made available and through applying, where appropriate, reduction or termination of grants. This should allow the reallocation of the budget dedicated to an action that remains unspent during its designated timeframe to other actions falling within the scope of this Programme.
(22) Given the size of the necessary works, it can happen that for the implementation of a cross-border section, several activities are carried out in parallel and are supported through different grant agreements but contributing to the same objective which is called the ’global project’. In order to contribute to a more efficient use of Union resources and ensure that important infrastructure objectives can be fully achieved, the Programme should allow for redirection of available funds within the scope of the same global project. Without prejudice to the use of competitive procedures in line with Article 192(1) of Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council 19 and in addition to the provisions of Article 198 of that Regulation, it should be possible to award such redirection of funds through amendments to the original actions, subject to the conditions set out in the work programme, including the maximum Union contribution.
(23) Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council applies to the Programme. It lays down the rules on the establishment and the implementation of the general budget of the Union, including the rules on grants, prizes, non-financial donations, procurement, indirect management, financial assistance, financial instruments and budgetary guarantees.
(24) In accordance with Regulation (EU, Euratom) 2024/2509 Regulation, the work programmes and the call documents are the appropriate place to set out more technical implementation details for the budget across the set of policies supported by the Programme, including specific eligibility and award criteria depending on the instrument of budget implementation, whether grant or procurement, and the specific policy objectives pursued. In accordance with Article 136 of the Financial Regulation, eligibility restrictions should apply to high-risk suppliers, for security reasons.
(25) The support provided by the Programme should boost investment by addressing market failures or sub-optimal investment situations, in a proportionate manner avoiding duplication or crowding out and by incentivising private funding and should have a clear Union added-value. Without prejudice to the application of Articles 107 and 108 TFEU to national resources, this approach will ensure consistency between the actions under the Programme and the State aid rules, thereby avoiding undue distortions of competition in the internal market. Furthermore, the CEF and Savings and Investments Union 20 measures can be mutually supportive, as public funding can be effective to de-risk large infrastructure projects and attract private investments in the EU, creating significant leverage effect. At the same time, the growing availability of efficient collective investment vehicles, like the European Long-term Investment Funds (ELTIFs), can efficiently catalyse long-term investments by institutional and other private investors towards infrastructure projects, thereby complementing and amplifying the funding available from CEF.
(26) In order to ensure uniform conditions for the implementation of the Programme through work programmes, implementing powers should be conferred on the Commission. Those powers should be exercised in accordance with Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011 laying down the rules and general principles concerning mechanisms for control by the Member States of the Commission's exercise of implementing powers 21 .
(27) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council 22 , Council Regulations (EC, Euratom) No 2988/95 23 , (Euratom, EC) No 2185/96 24 and (EU) 2017/1939 25 , the financial interests of the Union are to be protected through proportionate measures, including the prevention, detection, correction and investigation of irregularities and fraud, the recovery of funds lost, wrongly paid or incorrectly used and, where appropriate, the imposition of administrative sanctions. In particular, in accordance with Regulation (EU, Euratom) No 883/2013 and (Euratom, EC) No 2185/96 the European Anti-Fraud Office (OLAF) may carry out investigations, including on-the-spot checks and inspections, with a view to establishing whether there has been fraud, corruption or any other illegal activity affecting the financial interests of the Union. In accordance with Regulation (EU) 2017/1939, the European Public Prosecutor's Office (EPPO) may investigate and prosecute fraud and other illegal activities affecting the financial interests of the Union as provided for in Directive (EU) 2017/1371 of the European Parliament and of the Council 26 . In accordance with Regulation (EU, Euratom) 2024/2509, any person or entity receiving Union funds is to fully cooperate in the protection of the Union’s financial interests, to grant the necessary rights and access to the Commission, OLAF, EPPO and the European Court of Auditors and to ensure that any third parties involved in the implementation of Union funds grant equivalent rights. Third countries associated to the Programme are to grant the necessary rights and access required for the authorising officer responsible, OLAF and the Court of Auditors to comprehensively exercise their respective competences.
(28) The Programme is to be implemented in accordance with Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance Regulation] which establishes the rules for the expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility.
(29) Pursuant to Article 85 (1) of Council Decision (EU) 2021/1764 27 , persons and entities established in overseas countries and territories (OCTs) are eligible for funding subject to the rules and objectives of the Programme and possible arrangements applicable to the Member State to which the relevant OCT is linked.
(30) The Programme should respect the rights of persons with disabilities and in particular, ensure accessibility for them particularly in the transport sector.
(31) The Programme should be open for cooperation with third countries where this is in the interest of the Union. To this extent, the Union may associate, fully or partially, third countries to the constituent activities of the Programme. Association should be subject to a fair balance of contribution and benefits of the third country and ensure the protection of the financial and security interests of the Union.
(32) In order to take due account of the development of the trans-European network, the power to adopt acts in accordance with Article 290 of the Treaty on the Functioning of the European Union should be delegated to the Commission in respect of the amendments of the indicative list of projects of common interests in the Annex to this Regulation. It is of particular importance that the Commission carry out appropriate consultations during its preparatory work, including at expert level, and that those consultations be conducted in accordance with the principles laid down in the Interinstitutional Agreement of 13 April 2016 on Better Law-Making 28 . In particular, to ensure equal participation in the preparation of delegated acts, the European Parliament and the Council receive all documents at the same time as Member States' experts, and their experts systematically have access to meetings of Commission expert groups dealing with the preparation of delegated acts.
(33) Article 12(2) of Regulation (EU) 2021/1153 empowers the Commission to adopt implementing acts specifying the infrastructure requirements applicable to certain categories of dual use infrastructure actions. On that basis, Commission Implementing Regulation (EU) 2021/1328 29 was adopted. Following the revision of the legal framework with the adoption of Regulation (EU) 2024/1679 and in order to ensure the ability to further update the infrastructure requirements independently of the limited duration of the present regulation, it is necessary to the empowerment in that act to adopt implementing acts specifying the infrastructure requirements applicable to certain categories of dual use infrastructure actions should be laid down in that Regulation. Regulation (EU) 2024/1679 should therefore be amended accordingly so that it empowers the Commission to adopt implementing acts for that purpose.
(34) Regulation (EU) 2021/1153 should be repealed, with effect from 1 January 2028.