Komisjoni teatis - COM(2026) 520, SWD(2026) 520

EN EN

EUROPEAN COMMISSION

Brussels, 10.6.2026

COM(2026) 520 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

EU strategy for islands

{SWD(2026) 520 final}

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1. INTRODUCTION

Islands are an integral part of the EU’s identity, shaping its economy, history, geography and

culture. They range from densely populated territories close to the European mainland to

sparsely inhabited areas in the periphery. Islands face structural challenges linked to their

specific characteristics and are explicitly recognised in Article 174 TFEU among regions

suffering from severe and permanent natural or demographic handicaps, which may hamper

their development. Their insularity limits their capacity for sustainable growth and resilience,

at the same time, their territorial specificities, cultural heritage and natural environment offer

significant and diverse opportunities.

The EU has played an instrumental role over the years in helping islands overcome their

developmental challenges and exploit their potential, primarily through the support of cohesion

policy. However, ongoing trends and recent geopolitical developments have impacted further

these territories and demonstrated the need for a broader policy approach, leading to calls by

the European Parliament1 and island stakeholders for a dedicated strategic framework for

islands.

In light of these developments, President Von der Leyen’s political guidelines for 2024–2029

include a commitment to help address the multi-faceted challenges faced by islands in the EU

today. This strategy, the first ever dedicated to islands, delivers on that commitment. Reflecting

the key findings from an extensive public call for evidence and inputs from other European

institutions2, it identifies actions to better tailor the main EU policies to the islands’ specificities.

Moreover, it invites Member States to complement these actions with initiatives that can

empower island communities to realise their potential.

The strategy is structured around four key pillars, reflecting the unique opportunities and

challenges of island territories, and governance as a horizontal enabler:

The strategy covers all EU islands including the three island Member States of Cyprus, Ireland

and Malta, with the exception of the EU’s outermost regions, which have their own dedicated

1 Research for REGI Committee - Islands of the European Union: State of play and future challenges, European

Parliament resolution of 7 June 2022 on EU islands and cohesion policy: current situation and future challenges 2 This strategy draws on the 358 contributions received during the call for evidence launched in March 2026, and

on opinions and resolutions of the European Parliament, the Committee of Regions, the European Economic and

Social Committee, and island stakeholders’ positions.

Economic development,

connectivity,

competitiveness and

innovation

Energy security,

environmental

protection, green

transition and climate

resilience

Communities,

demography and

quality of life

Security and

crisis

preparedness

Governance

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strategy - to be updated soon, taking into account their specificities as recognised in the Treaty

on the Functioning of the European Union (Article 349). It is complementary to the EU Strategy

on resilient, prosperous and liveable coastal communities3, reflecting the interlinkages between

the sectors addressed and the territories and communities targeted. Both strategies are

referenced in the European Ocean Pact, reflecting the need for tailored approaches and stronger

synergies to support sustainable ocean governance and coastal community resilience,

development and prosperity.

2. STRATEGIC PILLARS FOR ISLANDS’ DEVELOPMENT

EU islands constitute a highly diverse group of territories, encompassing a wide range of sizes,

populations, and economic profiles. Across 16 Member States4, the EU has close to 27 000

islands, of which more than 4 000 are inhabited5, representing a total population of around 17

million people6. This includes the three island Member States - Cyprus, Ireland and Malta -

home to 6.6 million inhabitants. These island Member States are strategically situated at the

EU’s southeastern, southern and western border. Unlike island regions, their populations have

grown strongly in recent decades, while GDP per head is substantially above the EU average in

Ireland and Malta and broadly at par in Cyprus. Nonetheless, during the call for evidence to

which almost 360 stakeholders contributed, stakeholders from the three island Member States

emphasised structural economic constraints linked to insularity, and particularly for Malta and

Cyprus, their small market size.

The call for evidence confirmed that EU’s islands face particular challenges. For the first time,

the islands’ specificities are analysed in more detail in the working paper ‘Islands of the

European Union’. The outcomes of the call for evidence as well as the input gathered in

preparatory work and other relevant documents are summarised in the Commission Staff

Working Document on the stakeholder consultation (the synopsis report) accompanying the

strategy.

Box 1 - The cost of insularity

A key finding from OECD research, is the cost of insularity7 referring to the additional

economic, social, and fiscal burdens that islands face due to their geographic isolation and the

institutional constraints associated with it, including administrative and regulatory constraints

linked to limited accessibility, fragmented territorial structures and smaller economies of scale:

transport costs can exceed mainland benchmarks by just over 300% in some cases, local

government spending per capita can be around 30-50% higher and housing prices may be 75-

130% higher in some island municipalities. OECD evidence shows that: in Croatia island

municipalities spend around 29% more per capita on services than mainland counterparts, while

3 COM(2026) 530 4 Croatia, Cyprus, Denmark, Estonia, Finland, France, Germany, Greece, Ireland, Italy, Malta, the Netherlands,

Poland, Portugal, Spain, Sweden. 5 Islands are identified as bodies of land separated from the mainland using a Eurostat digital map with sufficient

detail to capture features like islands, major roads, and towns. This number does not include the 20 islands in the

EU outermost regions, with total population of 2.7 million inhabitants. The legal status of islands, without any

discrimination to size or population, should be in compliance with international law, including the United Nations

Convention on the Law of the Sea (UNCLOS). 6 The figures on island population are based on data from the 2021 population census grid (see:

https://ec.europa.eu/eurostat/web/gisco/geodata/population-distribution/population-grids). Grid-level population

data is allocated to islands via a methodology developed by REGIO-GIS. 7 OECD (2026), Policy Pathways Beyond the Shoreline: Enhancing Resilience and Innovation in Island

Economies, OECD Rural Studies, OECD Publishing, Paris, https://doi.org/10.1787/1aedeacb-en.

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in Sweden islands face up to 166% higher travel costs for residents and over 300% higher for

businesses. In Sicily insularity can reduce GDP per capita by about 7% or in the case of Sardinia

it can impose economic costs up to 36% of GDP per capita.

Beyond financial impacts, insularity also creates non-market costs, such as longer travel times

and reduced access to essential services, that can lower living standards and competitiveness.

In some cases, these challenges are further compounded by ‘double insularity’, where residents

must transit to a main island or through another island before reaching the mainland, increasing

not only connectivity constraints, but also the broader economic and social disadvantages

associated with insularity.

As the EU’s main investment policy, cohesion policy has been supporting locally adapted

solutions that respond to the specific territorial realities of islands. In the 2021-2027

programming period, Member States allocated at least EUR 12.5 billion8 for island-targeted

investments.

As part of the mid-term review of cohesion policy, EUR 1.6 billion was redirected in

cohesion policy programmes dedicated to islands towards five key political priorities:

competitiveness and decarbonisation, defence, security and civil preparedness, affordable

housing, water resilience and energy transition.

Cross-regional and cross-border collaboration through Interreg, the Interregional Innovation

Investment Instrument, TAIEX or the European Urban Initiative are also helping island regions

and municipalities address shared challenges by exchanging good practices and developing

joint projects and initiatives.

Furthermore, the common fisheries policy benefits coastal communities, while the common

agricultural policy (CAP) provides support to rural areas of islands. The contribution of these

policies to the development of islands is further outlined in the following sections.

Islands are also being supported by the Recovery and Resilience Facility through dedicated

measures that address their specific needs. Numerous reforms and investments improve islands’

connectivity by closing existing gaps and strengthening their economic potential.

Horizon Europe has delivered many projects in the island regions with the total net EU

contribution of approximately EUR 4.2 billion EUR.

The European Investment Bank facilitates the modernisation of islands infrastructure and

support to essential services, renewable energy, R&D and high-tech projects. From 2023 to

2025, it provided support to islands though a wide range of advisory services, as well as loans,

guarantees, and technical assistance amounting at least EUR 7.3 billion, including under

instruments such as InvestEU, EIF and JASPERS. Additionally, a number of EU co-financed

financial instruments target islands by promoting productive investment, business creation and

the green and digital transitions.

However, cross-cutting policy challenges remain in enabling citizens to have a genuine choice

to remain in the places they call home. The forthcoming strategy for the right to stay will

address these challenges for all remote areas, including EU islands.

8 The amount includes the EU allocations to island-specific programmes (excluding outermost regions), including

for island Member States, and under programmes using specific codes for investments in island and coastal areas.

Other programmes might support islands as well outside of the islands’ specific programmes and the relevant

categorisation.

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2.1. Economic development, connectivity, competitiveness and innovation

Economic competitiveness

In line with the Competitiveness Compass, the EU plays an important role in supporting

economic and entrepreneurial activity on islands. Cohesion policy invests in innovation

hubs, business incubators, digitalisation and capacity-building measures. These investments

contribute to the diversification of island economies beyond traditional sectors and facilitate

the uptake of new technologies, sustainable business models. The EU competitiveness priorities

were strengthened during the mid-term review of cohesion policy, with nearly EUR 1 billion

channelled in islands to support strategic technologies in the digital, clean and biotechnology

sectors. These efforts are aligned with the Clean Industrial Deal promoting decarbonisation,

including clean energy, and circularity.

Economic activity related to agriculture and rural development on islands is supported under

the CAP. Through CAP strategic plans, Member States can tailor interventions to their island-

specific realities, taking into account local farm structures, environmental sensitivities, and the

needs of their rural communities.

The system of Geographical Indications (GIs) linking a product to its area of production can

contribute to the diversification of economic activities thereby contributing to the sustainability

of the area.

Islands hold significant potential in the blue economy, driving sustainable growth, job creation

and innovation. The blue economy is addressed in more detail in the EU Strategy on resilient,

prosperous and liveable coastal communities.

Furthermore, in line with the European Agenda for Tourism 2030, the Commission supports

Member States and their islands to strengthen the resilience of their tourism ecosystem through

the Transition Pathway for Tourism and through technical assistance, notably in Greece and

Croatia. The forthcoming EU Sustainable Tourism Strategy will build on this and will provide

tools and orientation to strengthen the tourism ecosystems of islands and contribute to address

social, environmental and economic challenges.

Connectivity

The main challenge for islands is connectivity. Higher costs of transport, fragmented freight

logistics and limited intermodal alternatives limit their economic development and other aspects

of daily life. The EU provides support through investments from cohesion policy, the

Connecting Europe Facility, and the Digital Europe programme in island ports, maritime

transport, digital infrastructure, electricity grid interconnections and support services, such as

Broadband Competence Offices.

The recently adopted EU Ports Strategy, which highlights the potential of small and medium-

sized ports, promotes investments in ports, including measures to improve safety, electrification

and access to grids, as well as advisory services and de-risking tools to improve financing and

investments that are relevant for islands9. It also supports targeted initiatives on innovation,

clean energy, security and connectivity.

The EU’s State aid frameworks give Member States the possibility to provide islands with

tailored support in view of the structurally higher costs they face. The revised Services of

General Economic Interest (SGEI) Decision streamlines the State aid rules applicable to

9 The European Grids Package COM(2025) 1005 of 10 December 2025, including legal proposals, and the

Guidance on efficient and timely grid connections (C/2025/8473).

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airports, ports and maritime connections to islands, thereby facilitating connectivity, and

ensures that air links to islands remain within its scope. Under the General Block Exemption

Regulation (GBER), Member States can provide State aid to support islands. This includes

regional aid in islands that are designated in a regional aid map. State aid can also be granted

for air and ferry transport services for residents of remote regions10, in particular islands,

including in situations of double insularity, as well as for airports and ports, with higher aid

intensities for airports located in remote regions, particularly islands, which has been critical

for their connectivity and economic viability. The ongoing reviews of the relevant state-aid

frameworks will provide an opportunity to assess comments, as appropriate, on the need to cater

for island specificities.

To ensure adequate air and maritime services, some Member States introduce public service

obligations (PSOs) and pay compensation for the provision of those services when market-

based solutions fail to guarantee continuity, regularity, pricing or minimum capacity. Member

States may also provide social aid for air and maritime transport of islands residents. These

instruments can support year-round services to islands, ensuring their integration in the trans-

European transport network (TEN-T).

The Greek Transport Equivalent Mechanism is a government scheme offsetting higher

transport costs for residents and businesses on Greek islands. Air and ferry routes that are not

commercially viable but essential for connecting the small islands to the mainland or to each

other are subsidised through public service obligation (PSO) contracts. In parallel, the GR-eco

Islands initiative pilots renewable energy, electric transport and digital connectivity.

In order to ensure the connectivity of certain islands, the Emissions Trading System (ETS)

Directive and the FuelEU Maritime Regulation11 allow Member States to request exemptions

for certain islands12. The Alternative Fuel Infrastructure Regulation(AFIR)also includes

exemptions from minimum shore-side electricity targets for ports located on islands. These

exemptions recognised that the particular circumstances facing certain islands necessitated a

more gradual transition to decarbonisation. The Commission is undertaking a review of the EU

ETS and AFIR in 2026, followed by the planned review of the FuelEU Maritime Regulation,

which will give due attention to the situation of islands.

As outlined in the Industrial Maritime Strategy, the Commission expects to mobilise around

EUR 1-1.5 billion in investment in the waterborne sector by 2027 out of which one third will

materialise in 2026-2027, including for fleet renewal and retrofitting throughout all stages of

development. Fleet renewals and retrofitting are a particularly important investment for island-

connectivity, since delays in the green transition of maritime connectivity services may increase

the cost of insularity and weaken the accessibility of remote island communities, and should be

pursued in line with the Sustainable Transport Investment Plan.

Innovation

10 For the purposes of GBER, ‘remote regions’ means outermost regions, Malta, Cyprus, Ceuta and Melilla, islands

which are part of the territory of a Member State and sparsely populated areas. 11 Art. 2(3) of the Regulation (EU) 2023/1805 of the European Parliament and of the Council of 13 September

2023 on the use of renewable and low-carbon fuels in maritime transport, and amending Directive 2009/16/EC

sets out an exemption for islands below 200 000 residents 12 Article 12(3-d) of the ETS Directive 2003/87/EC (as amended by Directive (EU) 2023/959) allows Member

States to exempt shipping companies from surrendering allowances for emissions released until December 31,

2030, for voyages between a port of an island with no road/rail link and fewer than 200 000 permanent residents

and a port under the jurisdiction of the same Member State.

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Regional innovation in islands is supported through smart specialisation strategies (S3) under

cohesion policy. These strategies can help position islands within wider innovation ecosystems,

promoting local research, technology diffusion, entrepreneurship and collaboration between

businesses and research centres.

As the EU’s flagship research and innovation programme, Horizon Europe, contributes to

innovation in islands, e.g. through the EU Mission ‘Restore our Ocean and Waters’ and the

Sustainable Blue Economy Partnership (SBEP). In line with the SBEP research and innovation

agenda, and drawing on the commonalities among existing strategic research and innovation

agendas of the sea basins (Mediterranean, Black, Baltic, and North Sea) and the Atlantic Ocean,

the partnership supports islands’ transformation towards a climate-neutral, sustainable,

productive, and competitive economy.

At transnational, interregional and cross-border level, Interreg programmes mobilise

resources and expertise for joint projects involving islands, contributing to strengthening

research and innovation and the uptake of innovative solutions in key sectors such as the blue

economy, tourism and digitalisation. Digitalisation is particularly relevant for islands in the

context of the Smart Villages initiative, which fosters local innovation ecosystems, digital

solutions (e-services, smart mobility), and collaboration between islands, universities, start-ups

and social innovators.

Going forward

To further support islands’ ability to harness their economic potential, their connectivity,

competitiveness and innovation, the Commission will:

• Assess comments, as appropriate, on the particular circumstances of EU islands, including

the costs of insularity, in the context of the ongoing reviews of the 2014 Aviation

Guidelines, the General Block Exemption Regulation (GBER), and the Regional Aid

Guidelines (RAG), as well as provide technical support (such as training or practical

assistance) on the design and use of State aid instruments available to islands.

• Consider strengthening connectivity safeguards for islands in emergency situations,

including by way of competition and PSO frameworks.

• Assess the island-specific exemptions under the upcoming reviews of the Alternative Fuel

Infrastructure Regulation and FuelEU Maritime Regulation. Ensure that islands’ specific

needs and specific regimes are reflected in the roll out of the Sustainable Transport

Investment Plan (STIP).

• Consider potential issues that affect the competitiveness, connectivity and cost of living of

European islands as part of the upcoming review of the ETS and FuelEU Maritime

Regulation.

• Support Member States and islands to enhance the resilience and competitiveness of their

tourism ecosystems through the forthcoming EU strategy for sustainable tourism.

• Launch an in-depth analysis on the cost of insularity and best practice measures to mitigate

it, notably in the transport sector.

The Commission invites Member States to:

• Support islands in addressing their connectivity challenges, including by allocating part of

EU ETS national revenues to accelerate the deployment of zero emission transport solutions

and related investments including in maritime and aviation sectors.

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• Take into account the challenges of islands in their national transport plans and national

Digital Decade strategic roadmaps, ensuring a long-term vision for sustainable

connectivity and dedicated financial allocations, including for low-carbon transport modes.

• Seize the opportunities offered by the European Maritime Space to improve access to small

and medium-sized islands, including connectivity between comprehensive TEN-T ports

within a single Member State. In this context, make full use of CEF reflow call 2026 under

relevant CEF priorities to support islands, for example for decarbonisation projects in TEN-

T ports, including onshore power supply.

• Cooperate at archipelago/sea basin level to deploy economies of scale in the provision of

public services such as transport to achieve cost reduction, as well as to deploy large scale

projects (e.g. backbone networks, including with submarine cables, satellite links, 5G

connectivity, Broadband Competence Offices etc.).

• Leverage PSO, compensatory mechanisms and targeted subsidies, where appropriate, to

ensure that sustainable transport services mitigate the constraints caused by insularity and

preserve territorial connectivity.

• Maintain and expand reliable year-round ferry services to secure consistent islands –

mainland connections. Support the electrification of ports, airports and road transport on

islands, and the deployment of alternative fuels infrastructure for vessels.

• Promote a technology-neutral approach to the decarbonisation of island maritime

connectivity services, taking due account of operational requirements, port readiness, grid

capacity, energy availability and the maturity of alternative fuels, and develop dedicated and

predictable financing frameworks to support the necessary investments.

2.2. Energy security, environmental protection, green transition and climate resilience

Energy security

A challenge with particular relevance for islands is ensuring energy security, self-sufficiency

and decarbonisation. At the same time islands can contribute toenergy solutions and security.

Cohesion policy supports investments in energy efficiency, renewable energy sources and

smart energy systems. Islands with limited interconnections to the mainland also receive

targeted support, while the cohesion policy mid-term review allowed Member States to further

increase investments in interconnectors and related transmission, distribution, storage and

supporting infrastructure, as well as the protection of critical energy infrastructure and the

deployment of recharging infrastructure. Energy communities are collective and citizen-driven

energy actions and contribute to energy independence and security13. Clean and sustainable

transport also contributes to reducing greenhouse gas emissions and meeting decarbonisation

targets.

The energy transition and energy independence of many islands is further supported by the

Clean energy for EU islands initiative, which provides demand driven technical assistance

and facilitates cooperation between the Commission, Member States and islands in advancing

decarbonisation of the island energy systems.

13 To further support citizens in joining an energy community, action 5 of the Citizens Energy

Package (COM/2026/115 final) focuses on boosting energy self-production and energy sharing among citizens.

See also Commission Recommendation (EU) 2026/1007 of 30 April 2026 on supporting the development of energy

communities and maximising the potential of self-consumption, C/2026/2850.

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Environmental protection and climate resilience

The unique and diverse biodiversity of EU islands is increasingly endangered by pressures

such as climate change, pollution, unsustainable fishing, agriculture and tourism. In addition,

island communities face acute challenges in water and waste management. Cohesion policy

invests in sustainable water and waste management - including basic infrastructure, protection

and restoration of nature and biodiversity, and in the circular economy. Member States enhanced

water resilience measures during the mid-term review of cohesion policy.

As described in the European Water Resilience Strategy,especially water scarcity is a

challenge for some islands. Adequate fresh water for drinking and businesses is a growing

challenge. This activates the need for innovation and investment in sustainable desalination and

in general the building of a water-smart economy that fit the scale and ecosystem of islands.

Sustainable agricultural practices and efficient management of natural resources is

supported by the CAP, for example through eco-schemes and agri-environmental climate

payments.

Moreover, islands benefit from policies and initiatives relevant to the ocean and supporting the

long-term sustainability of fisheries and aquaculture. The EU Strategy on resilient,

prosperous and liveable coastal communities addresses these aspects in detail.

To strengthen climate resilience on the EU islands, adaptation measures need to be taken.

These can be supported by cohesion policy, such as coastal protection works to reduce erosion

and coastal flooding, or by measures to reduce the impacts of droughts. To ensure a socially fair

transition towards climate neutrality, Member States can use the Social Climate Fund to

support measures and investments to reduce emissions in the road transport and building

sectors, reducing costs for vulnerable households, micro-enterprises and transport users.

The upcoming Ocean and Water Research and Innovation Strategy will focus on a source-

to-sea approach to combat pollution, biodiversity loss and hydrological disruptions. The

OceanEye initiative will enhance ocean monitoring and data collection, which is vital for

islands given their vulnerability to climate and oceanic changes.

Going forward

To further support islands’ access to clean energy, green transition, environmental

protection and climate resilience, the Commission will:

• Extend the Clean energy for EU islands for the period 2027-2030 through funding under

the current multiannual financial framework. Mature projects that have received technical

assistance under this initiative can be eligible under cohesion policy to support islands’ clean

energy transition.

• Facilitate a regular dialogue between Member State authorities, responsible for energy

transition on the islands, and promote exchange and replication of the best practices and

tested solutions.

• Establish an island network operators’ voluntary platform for exchange and capacity

building in developing future-proof grids for 100% renewable energy systems.

• Work with Member States and stakeholders to put in place further measures for the

protection and sustainability of sensitive marine ecosystems, to achieve good

environmental status of their marine waters, focusing on marine biodiversity hotspots, such

as Natura 2000 sites and other marine protected areas.

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• Support the development of best practices and guidance on port-city relations and the

greening of ports, through the EU Missions ‘Climate-Neutral and Smart Cities’ and

‘Restore our Ocean and Waters’, as well as the European Ocean Pact.

The Commission invites Member States to:

• Consider integrated land–sea planning to close resource loops linking waste, water,

energy, agriculture, fisheries and tourism.

• Address specificities of islands and integrate island energy transition plans in the

national strategies. Advance expanding and modernising grids, design concrete

frameworks for energy storage, where absent, and reassess connection requirements for

renewable projects implementing the applicable legal framework.

• Accelerate deployment of renewables and energy communities, embed circular-

economy principles across water, waste and resource systems, and consider to reform

energy generation remuneration schemes for the islands (solidarity or cost compensation

mechanisms) to incentivise cost-efficient clean energy transition and shift away from fossil

fuels. Support investment to deploy clean or energy efficient solutions in off-grid situations.

• Leverage the Social Climate Fund, in order to take into account the geographic specificities

and challenges of islands in Social Climate Plans when addressing islands’ energy and

transport vulnerability, following a public consultation and engagement with stakeholders.

• Consider including in their national restoration plans (scheduled for submission by

September 2026) specific measures to protect and restore the unique biodiversity of

islands, as marine habitats can support sustainable fisheries, and protect against or reduce

the impacts of climate hazards such as sea-level rise and coastal storms, and subsequential

flooding and coastal erosion.

• Prioritise water infrastructure investments to improve water services and distribution

infrastructure, particularly in islands’ remote and underserved areas. Increase water saving

measures including increased efficiency and reduced leakage, water storage, conveyance and

use efficiency, while restoring natural water retention, and increasing water reuse. Strengthen

the source-to-sea approach by connecting coastal and marine waters with the freshwater

management and associated spatial planning.

2.3. Communities, demography and quality of life

Social cohesion is vital for the well-being and resilience of island communities. The current

investments in people and social infrastructure from cohesion policy improve access to

essential services and ensure equal opportunities. Through cohesion policy investments,

efforts can be tailored to address islands’ specific needs, from public services and private

activities, to education and skills, transport and digital connectivity, and healthcare. By focusing

on services like childcare and parental support, cohesion policy creates inclusive environments

that bolster social protection and integration.

Demographic change poses significant challenges for islands, affecting population size, age

structure and access to essential services. Cohesion policy helps islands facing population

decline, ageing and ‘brain drain’ by investing in jobs, services, infrastructure and local

attractiveness. The Commission’s Demography toolbox provides Member States with tools

and highlights key EU investment instruments.

Rural communities, including in islands, are supported by the ‘Long-term Vision for the EU’s

rural areas’, which establishes a strategic framework to make them stronger, connected,

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resilient, and prosperous. Integrated and bottom-upstrategies, such as integrated territorial

investments (ITI) and community-led local development (CLLD), enable Member States to

respond to community needs through tailored, place-based interventions. Participatory local

development tools, like LEADER, CLLDs and other forms of cooperation like Smart villages

and Fisheries Local Action Groups are also effective instruments for engaging island

communities and addressing local needs and challenges.

The Achill Experience project strengthens community cohesion, cultural heritage, and

economic vitality on Achill Island, Ireland. Funded through the CAP-LEADER/CLLD

framework, the project supports local education, heritage interpretation, and sustainable

tourism initiatives, providing year-round employment and opportunities for youth engagement.

By integrating local marine ecology, island traditions, and community-led activities, the project

reinforces social ties, preserves cultural identity, and empowers residents to contribute to

sustainable development and long-term demographic resilience.

Housing pressures on many islands are exacerbated by limited land, demographic changes,

increasing tourism flows, the presence of short-term rental accommodation and secondary

homes, vacant dwellings and investment demand or other forms of non-primary use of housing.

To help address these issues, the Commission adopted the European Affordable Housing Plan

setting ten key areas of action where the EU can add value and support Member States, e.g. in

relation to renovations and adaptive reuse of abandoned buildings as well as an increase in the

supply of affordable and social housing, including by mobilising investments into housing.

Improving affordable housing availability helps retain young professionals and qualified

workers – including in public services, healthcare and support local communities, countering

the threat of island abandonment.

Cohesion policy has been significantly supporting housing needs and itsmid-term review

enabled additional funding for affordable housing.

The promotion of the distinctive cultural heritage of islands contributes both to sustainable

tourism and to the preservation of local traditions. At EU level, programmes such as Creative

Europe support heritage-focused initiatives tailored to islands, from restoring historic fishing

villages to digitising intangible cultural practices like traditional music or boat-building.

Cohesion policy fosters social inclusion and regional diversity of the islands through support

for cultural and heritage actions, including heritage conservation, cultural infrastructure and

services, and cross-border cultural cooperation.

Furthermore, the New European Bauhaus supports participatory, place-based transformations

that are particularly relevant for islands, combining sustainability, aesthetics, and inclusivity to

shape living spaces and lifestyles.

Going forward

To further improve social cohesion, demography and quality of life in islands, the

Commission will:

• Increase support for young people’s sustainable learning mobility and engage with Europe’s

cultural heritage through the DiscoverEU initiative (under Erasmus+), with particular

attention to the inclusion of islands, and additional support measures (e.g., complementary

transport solutions).

• Cut red tape to facilitate the supply of affordable and sustainable housing where it is most

needed, by presenting a housing simplification package in 2027.

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• Support public authorities with the upcoming Affordable Housing Act to identify areas

under housing stress, and enable them, in full respect of subsidiarity, to protect and promote

housing affordability in those areas.

The Commission invites Member States to:

• Actively promote and facilitate youth participation in EU mobility, education, culture and

capacity-building programmes, such as DiscoverEU and the European Solidarity Corps,

with a focus on sustainable development in island regions. Raise awareness among young

people about tools and opportunities that enhance cultural and sustainable learning mobility

in islands destinations, including the New European Bauhaus route, and the European

Youth Card Associations promoting access to cultural services in islands and advancing

intercultural dialogue.

• Boost housing supply and affordability and expand social, sustainable and affordable

housing, including through cohesion policy funding, public–private partnerships, targeted

national funding schemes and long-term structural reforms. In addition, consider island-

targeted measures stemming from the Affordable Housing Act alleviating housing pressure.

• Simplify islands’ planning and permitting systems, strengthen their administrative capacity,

and use public procurement flexibilities to promote efficient housing provision. Some

examples include: zoning additional land, enforcing affordability requirements, leveraging

municipal land, and expanding dual-use accommodation for students and seasonal workers.

2.4. Security and crisis preparedness

Islands across the EU territory hold significant strategic value due to their geographic

location. Recent geopolitical developments have further highlighted their relevance and need

for additional investment. In particular, islands play an important role in ensuring security,

defence, preparedness, resilience of critical infrastructure, secure connectivity, and effective

border surveillance in the context of evolving geopolitical and security challenges.

In the context of the current geopolitical challenges, and in particular the ongoing Russian

aggression against Ukraine, which is challenging the overall security architecture of the EU,

the Baltic Sea region is a strategic and crucial area for the security and defence. Together with

the Mediterranean Sea region, it constitutes an essential part of the collective defence

architecture and plays a key role as a maritime, energy, and infrastructure corridor.

The mid-term review of cohesion policy has mobilised targeted funding for defence capabilities

and security, with a number of Member States programming investments to enhance civil

preparedness and industrial capacities and develop resilient infrastructure - including military

mobility island’s sea and hinterland connections of TEN-T ports and airports.

The White Paper on European Defence and the ReArm Europe Plan – Readiness 2023 provide

the overarching policy framework, while the Preparedness Union strategy, and the internal

security strategy are particularly relevant for islands given their emphasis on critical physical

and digital connectivity infrastructure, and address their protection under the Critical Entities

Resilience framework and the Network and Information Systems Directive 2. The security

of the maritime space is particularly relevant for islands and the implementation of the EU

Maritime Security Strategy is a key instrument to address all types of maritime security

threats and challenges that can directly impact islands and their population.

To counter disruption of submarine data cable infrastructures the Commission has

undertaken an EU Risk Assessment, deployed a Cable Security Toolbox and designated

12

priority funding areas for cable projects of European interest (CPEIs). This work is

complemented by Connecting Europe Facility - digital work programme funding for

submarine cable investments.Islands are explicitly considered, for instance, with a dedicated

risk sub-scenario as well as CPEI areas connecting to EU islands.Where terrestrial

infrastructures are lacking, EU satellite programmes, Galileo and EGNOS, provide islands

with high-precision navigation, emergency and early warnings, and search and rescue

capabilities. GOVSATCOM and IRIS² ensure secure and resilient connectivity in remote and

challenging maritime islands and regions for navigation, crisis management, civil protection

and redundant general connectivity and to explore the potential of EU islands in diversifying

the EU’s access-to-space capabilities, with a view to supporting the EU’s autonomous access to

space.

EU islands located in the Mediterranean Sea basin bear migratory pressures as primary

EU entry points. This calls for strengthened involvement of regional and local authorities in

policy design and funding allocation. The European migration strategy and the Pact on

Migration and Asylum provide the overarching framework, with screening, border

procedures, reception conditions, and vulnerability assessments predominantly implemented on

island territories. Frontex, Europol, and the European Union Agency for Asylum provide

operational support on the ground, while the Asylum, Migration and Integration Fund and

EU solidarity mechanisms - support a more equitable distribution of responsibilities across

Member States, including through relocation schemes as well as operations for the transfer of

migrants from the islands to Member States’ mainland.

The EU’s Preparedness Union strategy also strengthens disaster preparedness and risk

management, promoting early warning systems, community preparedness, and cross-border

cooperation. Interreg programmes facilitate cross-border cooperation between EU Member

states and also with Southern Mediterranean countries on risk prevention and sustainable

development.

Furthermore, the Union Civil Protection Mechanism provides a framework and tools for

disaster prevention, preparedness, and response. The European Civil Protection Pool of national

resources could be further reinforced to take into account the specific needs and vulnerabilities

of islands, while rescEU continues to provide a strategic reserve of disaster response capacities.

These efforts are further reinforced by regional cooperation within the Common Mediterranean

Space, particularly through the Pact for the Mediterranean, which promotes coordinated

actions to address shared security and preparedness challenges in areas such as anti-smuggling,

border and migration management, civil protection, judicial and law enforcement cooperation,

as well as protection and legal migration pathways.

Going forward

To further improve the security and crisis preparedness of islands, the Commission will:

• Promote in coordination with Member States and relevant EU agencies, the application of

the EU port strategy and the European Ports Alliance security best practices and port

security guidance specifically to islands ports.

• Identify, in close cooperation with the Member States, targeted short-term investments to

be implemented by Member States as a matter of priority along the EU military mobility

corridors, including islands.

• Encourage Interreg programme partnerships to capitalise on results that enhance the

resilience and preparedness of island communities through cooperation with Southern

13

Neighbourhood partner countries in areas such as wildfire response, civil protection and

disaster risk management, and facilitate their replication across islands.

The Commission invites Member States to:

• Ensure full transposition of the Critical Entities Resilience and the Network and

Information Systems Directive 2 (NIS2) with island-specific provisions, reinforcing

national frameworks for safeguarding critical infrastructures on islands territories,

including by designating islands ports as critical entities in line with the EU port strategy.

• Ensure that island-specific security needs are systematically reflected in national

security and migration strategies and operational plans, based on regular updating of

island-specific situational and risk assessments, where possible and in view of available

resources and capabilities, with the support of Europol and the European Multidisciplinary

Platform Against Criminal Threats (EMPACT). Where relevant, ensure that island ports and

airports benefit from appropriate levels of law enforcement presence, intelligence sharing,

and institutional and financial support. Also, Member States are encouraged, where possible,

to continue identifying vulnerabilities and informing targeted security measures at local

level.

• Strengthen coordination and cooperation between neighbouring Member States and

regions by establishing joint preparedness plans and response capacities with the support of

available funding opportunities. In parallel, Member States are encouraged to promote a

high level of risk awareness among island communities at local level to empower

residents to react and respond effectively in the event of an emergency.

• Promote monitoring systems for preventive maintenance of critical infrastructure such as

island ports, small municipal or regional airports, to provide better situation awareness for

local and national authorities.

2.5. Governance frameworks for islands

Integrating an island-sensitive approach within national planning and governance structures has

been shown to contribute significantly to the sustainable development and resilience of island

territories. OECD research has shown how ‘island-proofing’ in policy design and monitoring

frameworks helps to assess territorial impacts14.

This may include the formal recognition of the specific status of islands in constitutional

frameworks and development of dedicated island-related policy frameworks or dedicated

strategies. Member States with islands could consider developing such approaches in line with

good governance principles15 based on a multi-stakeholder process involving local authorities,

civil society, and other relevant actors, in full respect of their legal and institutional frameworks.

Island development policy in Croatia is coordinated at national level by the Ministry of

Regional Development and EU Funds and is framed by the Islands Act, which establishes a

multi-level governance framework involving counties and local island authorities. At county

level, a dedicated plan for island development is integrated into each county development plan

and covers the islands within each county.

14 “Island Economies: Building resilient, innovative and connected island regions. Improving the quality of multi-

level governance and strengthening the resilience of island economies of Croatia, Greece, and Sweden.” 27

November 2025. 15 European Code of Conduct on Partnership

14

Within the EU cohesion policy framework, Croatia has further developed this approach by

introducing a territorial instrument for island development based on a more structured bottom-

up governance model.

The Commission applies an integrated approach to better regulation, both when preparing new

initiatives and evaluating existing ones. Within this framework, and in line with the

communication ‘A simpler, clearer and better enforced EU rulebook’, the Commission

establishes the necessary evidence and analysis in function of the nature of the initiatives and

their expected impacts. This includes the analysis of differential impacts across regions, where

relevant. The analysis of territorial impacts can support the identification of place-based risks,

distributional effects and possible mitigation measures, whenever significant impacts are

distributed heterogeneously across different types of regions such as islands.

When planning and implementing EU funds under shared management, in line with the

European Code of Conduct on Partnership, relevant partners should be involved not only in

preparing these measures but also in implementing them. In view of the island-specific

challenges, local and regional actors should have their say to ensure their needs are reflected

and a coordinated national approach is developed accordingly.

Going forward

To further support capacity building and governance of islands, the Commission will:

• Promote the visibility and use of existing data on economic and social conditions as well as

the production of more granular data, including accessibility indicators at and below NUTS3

level in islands in view of better understanding and target policies to their specific

challenges16.

• Support Member States in tailoring and implementing reforms and investments addressing

the needs of islands in the national and regional partnership plans.

• As part of its better regulation approach, the Commission will seek to identify, at an early

stage, whether an upcoming initiative may have significant and differential impacts on

islands, and consider such impacts in an integrated manner as part of its impact assessment

process.

• Provide technical support, under the Technical Support Instrument, on developing,

implementing, and updating growth strategies and spatial plans for islands.

• Provide capacity building support for regional and local authorities through TAIEX-REGIO

Peer2Peer exchanges and facilitating efficient implementation of cohesion policy, as well as

targeted support to island urban authorities through the European Urban Initiative.

• Organise a biennial event bringing together EU institutions, island authorities, stakeholders

and civil society to facilitate dialogue, peer learning and the exchange of experiences on

island development.

• Ensure regular technical dialogue with EU institutions, island authorities, stakeholders and

other relevant bodies to address island-related policies (including on State aid issues),

contribute to simplifying and reducing the administrative burden, and support the exchange

of good practices.

• Liaise with the EIB group, together with other international and national financial

institutions to facilitate access to finance and foster the sustainable development of islands.

16 Without prejudice to restrictions on information and data protection under EU and national law, as well as

relevant confidentiality agreements.

15

The targeted lending support through the participating institutions may be granted on more

favourable terms, for example if combined with cohesion policy financing instruments.

The Commission invites Member States to:

• Include in their future national and regional partnership plans targeted measures

addressing development challenges of islands, including capacity building support. Allocate

sufficient resources to address the specific needs and challenges of islands, including those

linked to insularity, affecting areas such as connectivity, services and infrastructure. In

addition, make use of the possibilities under the future Connecting Europe Facility and the

European Competitiveness Fund.

• Design measures to support the needs of island territories using the flexibilities under the

existing State aid framework (e.g. GBER, RAG, State aid rules in agriculture (ABER) or

the Fishery Block Exemption Regulation (FIBER)).

• Expand the production and reporting of EU harmonised statistics at LAU level to improve

the assessment of economic and social conditions in islands.

• Consider using the toolkits for administrative capacity building roadmaps and for

beneficiary capacity building, as well as the outcome of the pilot project on attraction,

development and retention of key skills17.

• Consider using EIB technical advisory support (e.g. JASPERS and InvestEU Advisory

Hub) for the preparation of projects and strategies tackling islands related issues or loans for

their implementation.

• Promote integrated territorial investment tools to island areas as ‘functional’ areas to promote

integrated strategies for islands and facilitate better coordination.

CONCLUSIONS

EU islands are vital to the Union’s economic, social and territorial cohesion, as well as its

environmental, natural, and cultural diversity and heritage, while contributing to its

competitiveness, security and resilience.

The EU strategy for islands underlines their importance across EU policies and instruments,

providing a structured framework to strengthen their capacities, enhance their role within the

EU, and improve living conditions for local communities, addressing the costs of insularity,

contributing to a level playing field for participating in the Single Market and a just transition.

This strategy also seeks to create synergies and complementarities with other EU strategies,

such as the strategy on resilient, prosperous and liveable coastal communities, the Cities’

Agenda, and the forthcoming strategies on outermost regions, the right to stay and sustainable

tourism.

A successful implementation of this strategy requires a coordinated approach by all relevant

stakeholders, including EU institutions, Member States, regional and local authorities, social

partners, and civil society.

The next Multiannual Financial Framework and in particular the national and regional

partnership plans offer an opportunity for place-based investment reflecting the needs and

opportunities of islands.

17 A practical toolkit for preparing roadmaps for administrative capacity building, Administrative capacity

building self-assessment instrument and Managing authority toolkit for beneficiary capacity building under EU

cohesion policy

16

By addressing the specific development needs of islands and fully leveraging the opportunities

offered in the EU toolbox and the islands’ own assets, the sustainable and long-term

development of these territories, can be ensured to the benefit of local communities and the

entire European Union.

EN EN

EUROPEAN COMMISSION

Brussels, 10.6.2026

SWD(2026) 520 final

COMMISSION STAFF WORKING DOCUMENT

STAKEHOLDER CONSULTATION - SYNOPSIS REPORT

Synopsis report on the results of the Communication on the EU strategy for islands

consultation activities

Accompanying the document

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

EU strategy for islands

{COM(2026) 520 final}

1

Table of Contents Introduction ................................................................................................................................................... 2

Stakeholder consultation process .................................................................................................................. 2

1.1 Call for evidence ................................................................................................................................. 2

1.2 Other consultations ............................................................................................................................. 5

1.2.1 Position papers ............................................................................................................................. 5

1.2.2 Meetings and Events .................................................................................................................... 5

1.3 Methodology and tools used for data processing ................................................................................ 5

2 Input analysis ............................................................................................................................................. 6

2.1 Call for Evidence ................................................................................................................................ 6

2.1.1. Overview of contributions from all categories of respondents ................................................... 6

2.1.2. Highlights on the contributions from public authorities ............................................................. 9

Conclusions ................................................................................................................................................. 10

2

Introduction

This staff working document outlines the consultation strategy and activities supporting the

development of the EU strategy for islands. It provides an overview of the call for evidence as well

as complementary consultation activities, including contributions submitted directly to the

Commission services.

From 4 March to 1 April 2026, the European Commission’s Directorate-General for Regional and

Urban Policy launched a call for evidence for the EU strategy for islands on the ‘Have Your

Say’ portal. This was to feed into the preparation of the strategy by gathering feedback and

contributions from the general public, relevant stakeholders and public administrations to support

its development.

In line with an evidence-gathering approach, the strategy builds on a number of inputs received

outside the call for evidence timeframe. Inputs include position papers and reports submitted by

insular stakeholders, national and regional bodies from several Member States and international

cooperation bodies. These documents collected stakeholders’ views on challenges to be addressed,

expectations for the EU’s role, potential solutions at EU and national level, and practical examples

and good practices to shape the development of the strategy.

Further material transmitted to the Commission services in previous years was also taken into

account, ensuring continuity with existing knowledge and policy reflections.

The development of the strategy was further informed by input from EU institutions and advisory

bodies (for more details, consult paragraph 1.2.1).

Stakeholder consultation process

1.1 Call for evidence

The call for evidence for the EU strategy for islands received a total of 358 responses, offering

broad geographic representation. 18 EU Member States contributed, with the highest number of

submissions coming from Italy (92), followed by Greece (32), Croatia (31), Spain (28), and

Sweden (26). Other notable contributions included Malta (22), France (20), Portugal (17), Ireland

(15) and Cyprus (14), alongside responses from Denmark, Belgium, the Netherlands, Finland,

Estonia, Germany, Romania and Luxembourg. In addition, two EU outermost regions -

Guadeloupe and Réunion, as well as 4 non-EU or overseas territories – Iceland, Switzerland, Aruba

and Saint Lucia – participated. Data were reviewed and processed in line with the Better

Regulation Toolbox.

3

Figure 1. Number of responses to the call for evidence by territorial entity (EU Member States,

outermost regions, non-EU countries)

EU citizens represented the largest single group of respondents, accounting for 30% of

all contributions (106 responses), reflecting broad participation from individuals across the EU,

including those with an interest in island communities. Institutional stakeholders collectively

accounted for the remaining 70% of responses. The second main category of respondents is that

of public authorities, which provided 16% of replies (58 responses); business

associations submitted 14% of responses (50), followed closely by NGOs at 13% (48). The ‘Other’

category – comprising island networks, maritime organisations, interregional bodies and

cooperative associations – represented 11% (41 responses). Businesses accounted for 6% (22),

academic and research institutions for 5% (19), trade unions for 3% (9),

environmental organisations for 1% (4), and one contribution was received from a non-EU

citizen (Figure 2).

4

Figure 2. Percentage of responses to the call for evidence by type of stakeholder

For public authority respondents, the majority operates at local level (40%), followed by national

(30%) and regional (28%) levels, with a small number operating at international level (2%) (Figure

3).

A total of 170 documents (e.g.: position papers, studies) were submitted as part of the call for

evidence to the European Commission. Position papers were analysed in alignment with the

content of the Call for Evidence.

Figure 3. Scope of the public authorities’ responses to the call for evidence

Contributions submitted to the call for evidence are published on the ‘Have your say’ portal1. They

address the structural challenges arising from insularity – including transport connectivity,

demographic challenges, housing, access to public services, tourism pressure, energy

dependency and cohesion policy adaptation – as well as opportunities related to the blue economy,

5

renewable energy transition, digital innovation and the strategic role of EU islands in European

territorial cohesion and maritime security.

Out of the total number of contributions received, 48 were excluded from the analysis, due to

geographical and/or thematic irrelevance to the topic described in the call for evidence. The final

number of contributions considered for this analysis is explained in the paragraph dedicated to

methodology below.

1.2 Other consultations

1.2.1 Position papers

The European Commission received several further contributions outside the framework of the

call for evidence. Contributions were received from a wide range of actors, including Member

States and public authorities, and stakeholders representing islands such as CPMR, INSULEUR,

ESIN, and SMILO. These examples are indicative and do not constitute an exhaustive list of

contributors.

The strategy also builds on input provided by EU institutions and advisory bodies. This includes

European Parliament reports such as the resolution on EU islands and cohesion policy: current

situation and future challenges (2021/2079(INI)), as well as opinions from consultative

committees. Illustrative examples include the 2023 opinion of the European Economic and Social

Committee on the main challenges faced by EU islands, mountainous and sparsely populated areas

(C/2024/1572), the 2022 opinion of the European Committee of the Regions on enhancing

cohesion policy, and subsequent work of the European Economic and Social Committee, including

the 2026 opinion on the island dimension in European cohesion, competitiveness and sustainable

development policies. These references are provided as examples and are not exhaustive.

All position papers, reports and opinions received were considered during the development of the

strategy, reflecting the importance of integrating the perspectives of insular stakeholders alongside

those of EU institutions and advisory bodies.

1.2.2 Meetings and Events

During the consultation process, the European Commission – notably Executive Vice

President Fitto and the Directorate-General for Regional and Urban Policy – participated in

relevant meetings and events to inform stakeholders about the development of the strategy,

present its objectives and outline its scope. These events provided significant opportunities to

engage directly with stakeholders and collect their views, including on challenges to be addressed,

potential solutions at EU and national level, and practical examples and good practices helping

to shape the development of the strategy.

1.3 Methodology and tools used for data processing

The call for evidence for the EU strategy for islands received 358 responses. 48 were excluded,

due to either falling outside the geographic scope, such as submissions focusing on EU outermost

regions, overseas countries or territories, or non-EU countries, being duplicate entries, or lacking

6

thematic relevance to the objectives of the Call. The same approach was applied to supporting

documents attached to the replies to the Call.

In addition to the formal call for evidence submissions, supplementary contributions received via

email from relevant insular stakeholders were integrated into the analysis, as were other inputs

shared throughout the consultation process. This ensured that the final assessment was both

comprehensive and representative of the broad range of views expressed.

2 Input analysis

The results of all consultation activities listed above, including events and meetings, made it

possible to identify the most recurrent and pressing challenges faced by EU islands, along with the

solutions proposed by insular stakeholders to address them. The results show consistency across

contributions from citizens, public authorities and other stakeholders, stressing the need

for a tailored EU response to face islands’ structural constraints and foster their sustainable

development.

2.1 Call for Evidence

2.1.1. Overview of contributions from all categories of respondents

The analysis identified the 10 most frequently mentioned challenges and needs for island

territories, particularly related to connectivity, economic structure, demographic trends and access

to services. Contributions consistently show that these issues are interconnected and linked to the

structural characteristics of insularity, requiring integrated responses tailored to islands. This

chapter summarises the main issues identified and the solutions proposed by respondents.

1. Transport connectivity and costs

Connectivity was the most frequently mentioned issue across the replies, with respondents

referring to limited connectivity, including dependence on maritime and air transport; insufficient

frequency and reliability of services; high transport costs for passengers and goods and structural

disadvantages in supply chains. References were also made to limited accessibility, dependence

on external transport links, and disproportionate costs linked to decarbonisation measures affecting

transport, including maritime transport.

Contributors called for ensuring affordable, reliable and sustainable connectivity, including

support for maritime and air transport, and the development of transport infrastructure. Several

contributions highlighted the need for measures addressing transport accessibility and continuity.

References were also made to regulatory flexibility and compensatory measures in relation to

decarbonisation policies affecting transport.

2. Insufficient consideration of insularity in EU policies and governance

Insufficient reflection of insularity in EU legislation and funding frameworks emerged as a

recurrent challenge across the contributions. Respondents referred to the lack of systematic

consideration of island-specific challenges in EU policymaking, the absence of a binding

7

definition of islands, the application of uniform policies not adapted to island realities, and

fragmentation or lack of coordination of EU policies. References were also made to the limited

integration of island-specific conditions across policy areas.

Contributors proposed introducing mechanisms such as an ‘insularity clause’, integrating island

considerations into EU policymaking and establishing governance frameworks. References were

made to coordination platforms, consultation mechanisms and approaches to address island-

specific challenges within EU policy frameworks.

3. Structural economic constraints

Concerning structural economic constraints linked to insularity, respondents

referred to additional operating costs, small markets and limited economies of scale. Reduced

competitiveness, dependence on external inputs and limited market access were also repeatedly

highlighted. Several contributions further referred to constraints affecting economic development

and the functioning of local economies, including difficulties linked to geographic isolation and

structural conditions affecting island territories.

Proposals included measures to address operating costs and market constraints in island territories.

Contributors called for improved access to funding, including simplified procedures, adapted

funding conditions and higher co-financing rates. Several contributions also referred to support for

SMEs and micro-enterprises, as well as the adaptation of State aid frameworks to reflect structural

costs linked to insularity.

4. Dependence on limited economic sectors and seasonality

Dependence on a limited number of economic sectors, particularly tourism, emerged as a

recurrent topic across the contributions. Respondents referred to overdependence on tourism and

seasonal economic activity. Vulnerability to external shocks and the concentration of economic

activity in a small number of sectors were also highlighted. References were further made to

limited diversification and the structure of local economies in island territories.

Contributors proposed support for economic diversification and for economic

activities through measures supporting SMEs and micro-enterprises, including improved access to

funding and simplified procedures. Several contributions also referred to support for innovation

and digitalisation.

5. Demographic challenges

The most common demographic challenges mentioned included ageing population, youth

outmigration, population decline and labour shortages. In some cases, population increase was also

mentioned. References were also made to changes in demographic structure and its impacts on

local communities. Several contributions linked demographic trends to employment opportunities,

housing conditions and access to services.

Contributors called for measures to support population retention, including employment

opportunities and improved access to services. References were made to incentives for young

8

people and professionals, as well as measures supporting employment and living conditions in

island territories.

6. Housing availability and costs

Housing crises resulting from limited availability, high costs and pressures linked to tourism and

short-term rentals were another recurrent topic. References were made to difficulties for residents,

including young people and workers, to access housing.

Stakeholders called for support for affordable housing, the development of housing-related

funding instruments and regulatory measures affecting housing availability in island territories.

7. Limited access to services

Contributors referred to limited access to healthcare, education and other public services, service

shortages, accessibility constraints and higher provision costs compared to the mainland. Several

responses noted that these difficulties are particularly pronounced in remote and small island

territories.

Contributors proposed ensuring investments in healthcare, education and public services.

References were made to measures (unspecified) aimed at improving the accessibility and

availability of services in island territories.

8. Infrastructure gaps

Infrastructure gaps were identified across transport, energy, digital networks and water systems,

namely insufficient coverage, outdated or inadequate facilities, and uneven availability across

island territories. Several responses also highlighted constraints affecting infrastructure provision

and performance, particularly linked to geographic isolation, scale and island-specific conditions.

Investment was recommended to develop and upgrade infrastructure, especially in transport

(including ports and connectivity), as well as in digital infrastructure such as broadband, energy

systems, and water management in island territories.

9. Energy dependency and costs

EU islands suffer from energy dependence, including reliance on imported fossil fuels and non-

interconnected energy systems, high energy costs and energy poverty, while facing energy

supply issues. Several contributions also referred to the structure of island energy systems and its

implications for energy availability and affordability.

Contributors proposed to support renewable energy, decentralised systems, energy storage and

energy communities, with measures addressing energy supply and costs in island territories, to

strengthen resilience and reduce fossil fuel dependence.

10. Climate and environmental challenges

Contributions stressed islands’ exposure to climate change, including extreme weather events,

pressures on the environment and impacts on natural resources, and the higher costs linked to

climate adaptation and decarbonisation.

9

Insular stakeholders called for actions addressing climate impacts and environmental conditions

affecting island territories, including investments in coastal protection and erosion control and

water management systems to address scarcity and salinisation.

2.1.2. Highlights on the contributions from public authorities Public authorities from 14 EU Member States (Croatia, Cyprus, Denmark, Estonia, Finland,

France, Germany, Greece, Ireland, Italy, Malta, the Netherlands, Spain and Sweden) contributed

to this consultation process, outlining their main concerns and expectations for the strategy. Their

main concerns and suggestions are summarised below:

1. EU policy and regulatory frameworks for islands

The most widely shared concern related to the appropriateness of EU policy and regulatory

frameworks for islands. Public authorities expressed concern that existing EU policies are

primarily designed for mainland, interconnected economies and do not sufficiently reflect the

structural specificities of insular territories. Respondents highlighted the absence of a binding EU

definition of islands and of a systematic island-proofing mechanism.

A significant number of the respondents therefore advocated making such a mechanism mandatory

for all EU legislative and policy proposals. This would include a binding insularity clause requiring

systematic ex ante assessment of territorial impacts on islands, as well as mandatory adaptations

or derogations where standard provisions create disproportionate burdens. Public authorities also

called for a dedicated EU governance framework for islands, potentially through a specific

programme or directive integrating relevant sectoral policies under a coherent territorial approach.

This, in turn, would support structured dialogue between island authorities and EU institutions and

help prevent excessive centralisation of EU funds through national intermediaries. Proposals

included setting up a permanent EU Island Forum, creating an Island Task Force within the

Commission, and strengthening monitoring mechanisms. A dedicated funding approach was also

requested, such as a specific island envelope or ring-fenced allocation within cohesion policy

under the Multiannual Financial Framework. In addition, respondents called for simplified

administrative procedures, proportionality mechanisms, targeted technical assistance, higher co-

financing rates reflecting structural costs, and eligibility criteria better adapted to island realities.

2. Connectivity and transport costs

The second major concern was high transport costs and lack of connectivity, which were reported

to increase the cost of living and production, limit market access and restrict access to essential

services. The extension of the EU emissions trading system to maritime transport was highlighted

as a particular concern in several Member States, as it is expected to increase costs on essential

island routes without viable alternatives and create competitive distortions with non-EU ports.

Respondents proposed introducing a European public service obligation framework for maritime

connections to ensure minimum service standards, affordability and reliability on essential routes.

They also called for full integration of island maritime infrastructure into the TEN-T network, EU

criteria for resident fare compensation, and targeted investment in port modernisation and fleet

10

renewal. Derogations or compensation mechanisms related to the emissions

trading system (ETS) and FuelEU Maritime were requested to ensure territorial equity.

3. Energy systems and transition

Energy dependence, reliance on imported fossil fuels and physical disconnection from EU energy

networks were identified as key structural challenges. Respondents called for a dedicated

regulatory framework for non-interconnected island energy systems, including adapted grid codes,

tailored State aid rules and renewable energy support schemes reflecting island conditions.

Increased co-financing rates (up to 85-95%) for energy infrastructure were also proposed.

4. Demographic decline and housing pressures

Public authorities insisted that the ‘right to stay on one’s island’ guides the strategy’s objective to

face demographic decline, depopulation, limited employment opportunities, inadequate services,

and housing shortages. Especially for Greece, Croatia, Italy, France, Spain and the

Netherlands, tourism pressure, speculative real estate markets, and the growth of short-term rentals

are seen as key drivers reducing housing availability and increasing prices, making it difficult for

young people and essential workers to remain or settle on islands.

Respondents proposed a dedicated EU ‘Youth on Islands’ package, including affordable housing

measures, stable year-round employment, access to quality education and digital infrastructure,

youth entrepreneurship support and return programmes for emigrants. Additional measures

included regulation of short-term rentals, financing for social housing and controls on non-resident

property investment.

5. Administrative capacity and access to EU funds

Public authorities also highlighted limited administrative capacity in small island administrations.

They reported insufficient staff, expertise, and financial resources to manage complex EU funding

procedures and multi-level governance requirements, resulting in under-absorption of EU funds.

Co-financing requirements were considered disproportionate and difficult to meet for small island

municipalities. Administrative complexity was identified as a structural barrier to effective policy

implementation.

6. Climate vulnerability and transition costs

On exposure to climate risks, including sea level rise, coastal erosion, water scarcity, wildfires and

extreme weather events, respondents stressed that adaptation needs exceed local fiscal capacity.

The costs of climate transition and energy decarbonisation are seen as exacerbating existing

structural disadvantages, particularly in relation to maritime transport dependence. The application

of ETS and FuelEU Maritime is viewed as particularly challenging for island economies with

limited alternative transport options.

Conclusions

The consultation activities summarised in this synopsis report provide a non-exhaustive overview

of the outcomes of the call for evidence and other consultation activities carried out in the context

11

of preparing the EU strategy for islands. Across contributions, stakeholders consistently highlight

that island territories face a combination of persistent, interrelated challenges, stemming from the

structural conditions of insularity, requiring forward-looking, integrated and place-based

responses.

Many contributions came from individuals whose concerns centred on the everyday realities of

living on an island. The main concerns included the high cost and limited availability of transport,

which restricts mobility and access to essential services; the pressing crisis of housing affordability

and availability, exacerbated by speculation and seasonal demand; and the economic fragility

stemming from overreliance on tourism, which leaves communities vulnerable to seasonal

fluctuations. Demographic decline, particularly the outmigration of young people and key workers,

was another recurring concern, alongside calls for greater economic diversification and investment

in renewable energy to reduce dependence on imported fuels. Additionally, they highlighted the

absence of a dedicated EU legal framework for islands, which undermines efforts to tackle these

challenges effectively.

Public authorities, while sharing many of these concerns, placed greater emphasis on regulatory

solutions. Their contributions focused on securing formal recognition of insularity within EU

policy frameworks, establishing a binding mechanism for island-proofing legislation, and creating

a dedicated governance structure to facilitate direct dialogue between islands and EU institutions.

They prioritised measures to reduce transport and energy costs, such as exemptions under the ETS,

strengthened public service obligations, and targeted investments in connectivity and non-

interconnected energy systems, as well as simplified access to EU funds, higher co-financing rates,

and support to overcome administrative capacity constraints. Like the individuals, they also

stressed the need to combat depopulation through youth retention initiatives, affordable housing

policies, and recognition of the right to stay and to return, while advocating for greater climate

resilience and compensation for the structural economic disadvantages islands face. While

individuals focused on the practical impacts of insularity, public authorities and other organised

stakeholders such as NGOs and business associations delved more deeply into regulatory and

financial instruments, proposing specific adjustments to frameworks like the ETS and State aid

rules to better accommodate island needs. Crisis preparedness, particularly in civil protection,

emergency response and maintaining essential services, along with migration pressures, were also

noted, underscoring the need for strengthened, adaptive management frameworks to alleviate

operational burdens.

To conclude, this consultation stressed the need for an EU policy response that accounts for

structural insular features, embeds insularity as a core consideration in EU policymaking through

systematic island-proofing, improved governance, and greater involvement of island authorities in

decision-making. The challenges islands face, whether economic, social or environmental, are

deeply interconnected, reinforcing the need for a cohesive strategy that aligns EU objectives with

local realities while ensuring effective implementation.

All input received from stakeholders was analysed and considered in the preparation of the EU

strategy for islands.