| Dokumendiregister | Kaitseministeerium |
| Viit | 5-9/25/21 |
| Registreeritud | 14.08.2025 |
| Sünkroonitud | 15.08.2025 |
| Liik | Sissetulev kiri |
| Funktsioon | 5 Õigusvaldkonna korraldamine |
| Sari | 5-9 Teiste ministeeriumide koostatud VV määruste eelnõud |
| Toimik | 5-9/25 Teiste ministeeriumide koostatud VV määruste eelnõud 2025 |
| Juurdepääsupiirang | Avalik |
| Juurdepääsupiirang | |
| Adressaat | Kliimaministeerium |
| Saabumis/saatmisviis | Kliimaministeerium |
| Vastutaja | |
| Originaal | Ava uues aknas |
Resolutsiooni liik: Riigikantselei resolutsioon Viide: Kliimaministeerium / / ; Riigikantselei / / 2-5/25-01513
Resolutsiooni teema: Euroopa ühendamise rahastu määrus (CEF)
Adressaat: Kliimaministeerium Ülesanne: Tulenevalt Riigikogu kodu- ja töökorra seaduse § 152` lg 1 p 2 ning Vabariigi Valitsuse reglemendi § 3 lg 4 palun valmistada ette Vabariigi Valitsuse seisukoha ja otsuse eelnõu järgneva algatuse kohta, kaasates seejuures olulisi huvigruppe ja osapooli: - Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Connecting Europe Facility for the period 2028-2034, amending Regulation (EU) 2024/1679 and repealing Regulation (EU) 2021/1153, COM(2025) 547.
EISi toimiku nr: 25-0515
Tähtaeg: 12.09.2025
Adressaat: Kaitseministeerium, Rahandusministeerium, Siseministeerium Ülesanne: Palun esitada oma sisend Kliimaministeeriumile seisukohtade kujundamiseks antud eelnõu kohta (eelnõude infosüsteemi (EIS) kaudu). Tähtaeg: 22.08.2025
Lisainfo: Eelnõu on kavas arutada valitsuse 25.09.09.2025 istungil ja Vabariigi Valitsuse reglemendi § 6 lg 6 kohaselt sellele eelneval nädalal (17.09.2025) EL koordinatsioonikogus. Esialgsed materjalid EL koordinatsioonikoguks palume esitada hiljemalt 12.09.2025.
Kinnitaja: Merli Vahar, Euroopa Liidu asjade direktori asetäitja Kinnitamise kuupäev: 13.08.2025 Resolutsiooni koostaja: Sandra Metste [email protected],
.
13.08.2025
Euroopa ühendamise rahastu määrus (CEF)
Otsuse ettepanek koordinatsioonikogule
Kujundada seisukoht
Kaasvastutaja sisendi tähtpäev 22.08.2025
KOKi esitamise tähtpäev 17.09.2025
VV esitamise tähtpäev 25.09.2025
Vastutav ministeerium: Kliimaministeerium
Kaasvastutajad: Rahandusministeerium, Kaitseministeerium, Siseministeerium
Seisukoha valitsusse toomise alus ja põhjendus
Algatuse reguleerimisala nõuab vastavalt Eesti Vabariigi põhiseadusele seaduse või Riigikogu otsuse vastuvõtmist, muutmist või kehtetuks tunnistamist (RKKTS § 152¹ lg 1 p 1);
Algatuse vastuvõtmisega kaasneks oluline majanduslik või sotsiaalne mõju (RKKTS § 152¹ lg 1 p 2);
Sisukokkuvõte
Määrusega luuakse aastateks 2028-2034 81,428 miljardi euro suuruse eelarvega Euroopa ühendamise rahastu, mille eesmärk on rahastada strateegilisi ELi piiriüleseid transpordi- ja energiaprojekte ning sõjalise liikuvuse taristut.
Kas EL algatus reguleerib karistusi või haldustrahve? Otseselt mitte.
Samas on olemas sätted, mille alusel võib toetusi vähendada, lõpetada või ELi rahalisi vahendeid tagasi nõuda, kui projektis on suuri viivitusi või rikkumisi.
Kas nähakse ette uue asutuse loomine (järelevalvelised või muud asutused)? Ei
Jätkatakse olemasolevate ELi institutsioonidega, mis teevad järelevalvet ja kontrolli projektide üle (peamine asutus on CINEA).
Kas lahenduse rakendamine vajab IT-arendusi? Mõningal määral.
Peamiselt tuginetakse olemasolevatele ELi süsteemidele nagu TENtec, eGrants, Map-IT, EAFO (European Alternative Fuels Observatory) jt. Mainitakse ka Euroopa
2
liikuvusandmete ruumi, mida soovitakse kasutusele võtta andmete jagamiseks ning mis võib vajada uusi IT-arendusi.
Eesmärgid
Eesmärk – Programmi eesmärk on rahastada piiriüleseid ja kõrge ELi lisandväärtusega transpordi- ja energiaprojekte ning sõjalise liikuvuse taristut, et tugevdada ELi siseturgu, taristu toimepidevust ja saavutada ELi kliimaeesmärke. CEF-i on kasutatud alates 2014. aastast ELi taristu puudujääkide kõrvaldamiseks ning eelkõige selliste projektide rahastamiseks, mida ei ole võimalik vaid riiklikest eelarvetest katta.
Transpordisektoris keskendub CEF TEN-T põhivõrgu projektide lõpule viimisele, seejuures piiriülestele taristuprojektidele (nagu Rail Baltic), toetatakse ka ühenduste rajamist Ukraina, Moldova ja Lääne-Balkani riikidega, rahastatakse nutikaid ja kestlikke transpordisüsteeme (sh alternatiivtaristu infrastruktuur, transpordi digitaliseerimine) ning sõjalise liikuvuse projekte. Transpordile on ettepanekus ette nähtud 51,515 miljardit eurot, millest 17,651 miljardi ulatuses rahastatakse sõjalise mobiilsuse infrastruktuuri.
Energiasektoris on fookuses piiriülesed ühishuvi (PCI) ja vastastikuse huvi (PMI) staatusega infrastruktuuri projektid, eelkõige elektri-, vesiniku ja CO2 transpordiga seotud valdkondades. Lisaks toetatakse liikmesriikide ühisprojekte taastuvenergia tootmise ja salvestamise vallas. Energeetikale on ette nähtud 29,912 miljardit eurot.
Projektide valik toimub konkurentsipõhiste taotlusvoorude kaudu, kus lähtutakse projekti küpsusest ja ELi lisandväärtusest.
Mõju ja sihtrühm
Mõju valdkonnad
Majandus
Ettevõtlus
Sihtrühm: Transpordi- ja energiataristu haldajad ja operaatorid, energiaettevõtted, sõjalise liikuvuse projektide arendajad
Mõju sihtrühmale: CEF-i investeeringud aitavad kiirendada TEN-T ja TEN-E võrkude projektide valmimist, stimuleerivad ettevõtjaid erakapitali projektidesse kaasama. Taristu tugevdamine vähendab logistikakulusid ja laiendab ettevõtete turgu, parandab energia varustuskindlust ning võib alandada ka energiahindu. Arenevad uued tehnoloogiad nagu digitaalsed transpordijuhtimise süsteemid, energia salvestuslahendused, alternatiivkütuste taristu jne.
Halduskoormus
Kas lahendusega kaasneb mõju halduskoormusele? Jah
3
Kas ettevõtetele halduskoormus: Väheneb
CEF-i puhul kehtib üks tsentraliseeritud EL-i protsess, digitaalsed tööriistad ja lihtsustatud kulureeglid, mis asendavad keerulised riiklikud menetlused. Seega peaks halduskoormus piiriüleste projektide arendajatele vähenema.
Kas avaliku sektori töökoormus: Ei kasva
Avaliku sektori koormus ei tõuse, kuna CEF jääb ELi tsentraalselt juhitud programmiks ning taotluste ja aruandluse süsteemi haldab Euroopa Komisjon ja CINEA.
Keskkond
Kliimamuutused, keskkond ja õhukvaliteet
Sihtrühm: Elanikud, ettevõtted
Mõju sihtrühmale: Määrus aitab saavutada ELi kliimaneutraalsuse eesmärki aastaks 2050. Aitab edendada investeeringuid madala heitega transporditaristusse (sh elektriraudteed, alternatiivkütuste laadimistaristu, ERTMS süsteemid). Edendab ka taastuvenergia arendamist ja riikide vahel elektrivõrkude laiendamist, mis vähendab fossiilkütuste kasutamist. Puhta transpordi ja energiatootmise arendamine vähendab õhusaasteainete õhku paiskamist, mis parandab õhukvaliteeti.
Riigivalitsemine
Riigieelarve
Kas lahendusega kaasneb mõju riigieelarve kuludele? Jah
Kuna CEF-i toetus on kuni 75% kuludest, siis ülejäänud osa peavad projekti kuludest tavaliselt katma liikmesriigid kas oma eelarvest või muudest rahastamisallikatest. Samas aitab ELi rahastus vähendada riigi finantskoormust suurte piiriüleste taristuprojektide rajamise puhul.
Infotehnoloogia ja infoühiskond
Infotehnoloogilised arendused
Kas lahenduse rakendamine vajab IT-arendusi? Mõnevõrra
Selgitus: Peamiselt kasutatakse juba olemasolevaid IT-süsteeme, mida uuendab Euroopa Komisjon. Uus süsteem on Euroopa liikuvusandmete ruum, mida soovitakse kasutada andmete jagamiseks erinevate transpordisüsteemide vahel, millega ühildumine võib nõuda IT-arendust.
Riigikaitse ja välissuhted
Riigikaitse
4
Sihtrühm: Ettevõtted, elanikud
Mõju sihtrühmale: CEF-iga rahastatakse kahesuguse kasutusega taristuprojekte, mis panustab ka militaarvaldkonna arengusse. Näiteks saab tugevdada teid, sildu ja raudteid raskete sõjaväe sõidukite jaoks, laiendada sadamaid ja lennujaamu.
Välissuhted
CEF-i alt saab rahastada projekte, mis hõlmavad ka EL-i naabruses olevaid riike (Ukraina, Moldova, Lääne-Balkan), mis aitab tugevdada välissuhteid ja kaubandust. Ühtlasi aitab see lõimida ELi kandidaatriike tugevamalt ELi võrkudesse.
Kaasamine
Taristuehituse ja logistika ettevõtted, energiaettevõtted, alternatiivkütuste taristu arendajad, keskkonnaorganisatsioonid ning muud asjassepuutuvad asutused.
EN EN
EUROPEAN COMMISSION
Brussels, 16.7.2025
COM(2025) 547 final
2025/0221 (COD)
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing the Connecting Europe Facility for the period 2028-2034, amending
Regulation (EU) 2024/1679 and repealing Regulation (EU) 2021/1153
EN 1 EN
EXPLANATORY MEMORANDUM
1. CONTEXT OF THE PROPOSAL
On 16 July 2025, the Commission adopted a proposal for the next Multiannual Financial
Framework for the period post-2027, including a financial envelope of EUR 81 428 000 000
for the ‘Connecting Europe Facility’ (CEF) for investments in trans-European networks for
transport and energy infrastructure, including military mobility and renewable energy
projects. This proposal aims to set the legal basis for CEF for the period 2028-2034.
• Reasons and objectives
To achieve smart, sustainable and inclusive growth, the EU needs an up-to-date, high-
performance and resilient infrastructure to help connect and integrate the transport and energy
sectors throughout the EU and all its regions. These connections are key for the free
movement of persons, goods, capital and services.
The trans-European networks for transport and energy:
• facilitate cross-border connections;
• ensure the EU’s security;
• increase the competitiveness of Europe’s social market economy;
• contribute to combating climate change; and
• lift isolation and foster greater economic, social and territorial cohesion.
High-capacity trans-European networks are also needed to increase the EU’s resilience and
military preparedness.
Seamless connections for transport and energy throughout Europe will contribute to the
success of the single market. They will provide tangible benefits to all European citizens and
businesses, by making it more efficient and sustainable for them to travel, ship goods, and
access secure, affordable and decarbonised energy.
For this purpose, the CEF supports investments, both in transport and energy infrastructure
through the development of the trans-European networks and in cross-border renewable
energy projects. In light of increasing risks linked to natural and technological hazards,
evolving security threats, and other disruptions, it is essential to ensure that investments under
the CEF are risk-informed and disaster resilient, in line with the objectives of the EU
Preparedness Union Strategy.
The CEF focuses on projects of highest added value for the EU and catalyses investments in
projects with a cross-border impact and European-wide interoperable systems, which must
continued to be funded after 2027. By providing support to cross-border projects directly at
EU level, the CEF helps overcome coordination problems that arise from the multi-
jurisdictional nature of the projects. With its efficient modus operandi, the CEF addresses
market failures and helps leverage further investment and funding from other sources, such as
national budgets, national energy tariff systems and the private sector, using the full range of
tools available under the Financial Regulation.
For transport, the CEF aims to contribute to the completion of the trans-European transport
network (‘TEN-T’), with the focus on completing the core and extended core network by
EN 2 EN
2030 and 2040. The development of a European wide multimodal transport network is a key
condition for growth and sustainability in Europe – from the entry points which are the ports
to the basic land connections needed for the single market and the connectivity of regions. In
this context, the CEF will in particular concentrate on infrastructure projects with a strong
cross-border dimension, such as the Rail Baltica project, the Brenner Base Tunnel, the Seine-
Escaut inland waterway, Brno-Bratislava, Thessaloniki-Bucharest or the development of
hinterland connections of TEN-T ports.
In close coordination with the European Competitiveness Fund and the National and Regional
Partnership Plans, the CEF also supports interoperable, safe and smart mobility on the TEN-T
network (for example by deploying European traffic management systems such as the
European Rail Traffic Management System or the River Information Services for inland
waterways), or where appropriate, by ensuring their interconnection through interoperability,
standards or user terminals, to the EU space systems such as Galileo, EGNOS and the IRIS²,
for positioning, navigation and timing and for secure connectivity respectively, and helps the
EU transition towards sustainable, decarbonised mobility (for example by providing for
onshore power supply for vessels in TEN-T ports).
The CEF can also invest in cross-border connections with third countries implementing the
extension of TEN-T corridors to candidate countries. For example, this has been done in the
period 2021-2027 for the connections to Ukraine and Moldova, improving the functioning of
the Solidarity Lanes, and starting preparatory works to align the rail gauge in these two
countries to the EU standard. While this was justified due to the crisis following the Russian
war of aggression against Ukraine, and in anticipation of their closer integration into the EU
market, such investments divert away resources from projects on the territory of Union.
If the TENT-T cross-border projects are not completed, the increase in travel time and travel
costs of people and goods will lead to economic losses stemming from reduced total
productivity and slower growth of intra-EU trade. This will amount to a reduction in GDP of -
0.4% in 2030 and of -0.8% in 2050 relative to a scenario in which the TEN-T cross-border
projects are completed. Employment in the Member States would also decrease by -0.08% in
2030 and by -0.13% in 2050 relative to the baseline1.
The CEF should also provide EU funding for implementing dual-use civilian-military
transport projects to enable seamless military mobility throughout the EU. The current
transport infrastructure in the EU (including the TEN-T) does not allow for largescale
movements of troops and heavy equipment and material at short notice. This is essential for
European security and defence, as is recognised in the ‘Joint White Paper for European
Defence Readiness 2030’ adopted on 19 March 2025. CEF also contributes to the overall goal
of the “European Preparedness Union Strategy” to create a secure and resilient Union that
aims at preserving the vital functions of the society in all circumstances.
The EU has identified four priority multimodal military mobility corridors covering rail, road,
rivers, sea and air, that need substantial and urgent investments to facilitate the movement of
troops and military equipment. These include widening railway tunnels, reinforcing road and
railway bridges, and expanding port and airport terminals. Together with Member States and
1 European Commission: Directorate-General for Mobility and Transport, Schade, W., Khanna, A., Mader, S.,
Streif, M. et al., Support study on the climate adaptation and cross-border investment needs to realise the
TEN-T network, Publications Office of the European Union, 2024,
https://data.europa.eu/doi/10.2832/7839720
EN 3 EN
the military community priority investments have been identified to remove the most urgent
bottlenecks(‘hotspots’).
As an essential tool to complete the Energy Union, the CEF will provide funding to two types
of cross-border energy projects:
• energy infrastructure projects in the electricity, hydrogen and carbon dioxide
transport sectors that have a significant cross-border impact and have been
awarded the status of a project of common interest (PCI) or project of mutual
interest (PMI) under the TEN-E Regulation;
• cross-border projects in the field of renewable energy that are based on a
cooperation agreement between Member States under the Renewable Energy
Directive.
These projects are key to (i) improving the security of energy supply in the EU and in
neighbouring third countries; (ii) decarbonising the energy system; (iii) facilitating the
integration of renewable energy sources, onshore and offshore; (iv) better integrating energy
markets; and (v) giving households and businesses in Europe access to affordable energy;
thus contributing to the competitiveness of the European economy and the prosperity of
people.
In its conclusions on “Advancing Sustainable Electricity Grid Infrastructure”, as approved by
the Transport, Telecommunications and Energy Council on 30 May 2024, the Council
acknowledged “the unprecedented investment needs in electricity networks at both
transmission and distribution level in order to ensure a highly interconnected, integrated and
synchronised European power system”, invited the Commission “to look for ways to increase
overall investments for electricity grid infrastructure” and stressed “the need for a robust CEF
in order to adequately respond to and support the increased investment needs in onshore and
offshore grid development projects”.
• Consistency with existing policy provisions
The CEF’s overarching objective is to support the achievement of the EU policy objectives in
the transport and energy sectors for the trans-European networks and cross-border cooperation
on renewable energy, by enabling or accelerating investments in projects of common interest
and projects of mutual interest, and by supporting cross-border cooperation on renewable
energy generation.
In the transport sector, the CEF contributes to the EU’s long-term objectives for the
completion of the TEN-T core network by 20302, the completion of the extended core
network by 2040, and where relevant, progress towards the completion of the TEN-T
comprehensive network by 2050 through preparatory studies. In particular for the completion
of the core network, the next multiannual financial framework (MFF) will thus be decisive.
CEF-funded investments also support the transition towards clean, interoperable and
multimodal mobility. The CEF is also helping to develop a European high-speed rail network
aimed at connecting EU capitals (including through night trains), and to accelerate rail freight.
2 Regulation (EU) 2024/1679 of the European Parliament and of the Council of 13 June 2024 on Union
guidelines for the development of the trans-European transport network, amending Regulations (EU)
2021/1153 and (EU) No 913/2010 and repealing Regulation (EU) No 1315/2013, OJ L, 2024/1679,
28.6.2024, http://data.europa.eu/eli/reg/2024/1679/oj
EN 4 EN
In the energy sector, the CEF complements the Trans-European Networks for Energy (TEN-
E) framework and the selection of PCIs and PMIs. Under the TEN-E Regulation, the
following three-step logic applies to investments in these PCIs and PMIs. First, the market
should have the priority to invest. Second, if investments are not made by the market,
regulatory solutions should be explored, and the relevant regulatory framework should be
adjusted if necessary. Third, where the first two steps are not sufficient to deliver the
necessary investments in PCIs, CEF grants may be awarded to eligible PCIs as a last-resort
option. The CEF also complements the cooperation mechanisms set out by the Renewable
Energy Directive such as statistical transfers, joint projects or joint support schemes.
• Consistency with other Union policies
Transport and energy infrastructure and energy generation will be supported to various
degrees by different EU financial programmes and instruments, including the CEF, the
National and Regional Partnership Plans, the European Competitiveness Fund and Horizon
Europe as well as Global Europe.
It is important to make the most efficient use of the various EU financing programmes and
instruments and thus maximise the complementarity and added value of investments
supported by the EU. This should be achieved via the new structure of the MFF, by
maintaining consistency across relevant EU programmes, avoiding overlaps, and focusing on
investments with high EU added value.
In this context, the CEF should focus on supporting (i) projects with a cross border dimension
on the TEN-T and TEN-E networks, (ii) projects for seamless military mobility across the
EU, and (iii) projects in the field of renewable energy cooperation. Investments in the TEN-T
network under the National and Regional Partnership Plans should complement investments
under the CEF.
The extension of the TEN-T corridors to candidate countries and transport and energy
infrastructure in third countries should be supported in close coordination with Global
Europe.
A strong co-creation process between R&I and CEF will be pursued in particular for the
decarbonisation of all transport modes, but also for energy. Horizon Europe will continue to
support Research and Innovation in transport and energy. The European Competitiveness
Fund will cover the scale-up and deployment of cutting-edge innovative solutions for the
decarbonisation, digitalisation, sustainability and resilience of transport and energy (e.g. new
generation of European Air Traffic Management system supported by AI and cloud
technologies, civilian-military dual-use and zero-emission ferry of the future). In particular, it
should identify the best mix of private and public capital for such investments.
The CEF’s actions should be used to address market failures or sub-optimal investment
situations, in a proportionate manner, without duplicating or crowding out private financing
and should have a clear EU added value. In this respect, the CEF and Savings and
Investments Union3 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
3 COM/2025/124 final
EN 5 EN
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. This will also ensure consistency between the actions under the programme and EU
State aid rules, including multi-country projects such as Important Projects of Common
European Interest (IPCEI), avoiding undue distortions of competition in the single market.
The Union transport and energy objectives must be achieved in way that ensures
competitiveness, economic growth, cohesion and security, in consistency with climate and
environmental policies. Investments should support climate neutrality by 2050, avoid
biodiversity loss, and reduce or eliminate pollution, in line with EU policy and legislation.
Where appropriate, nature-based solutions could be integrated into projects, as they can often
enhance climate resilience while being cost-effective, and providing benefits to society.
2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY
• Legal basis
Trans-European networks are covered under Article 170 TFEU, which specifies: ‘The Union
shall contribute to the establishment and development of trans-European networks in the areas
of transport, telecommunications and energy infrastructures’.
The right for the EU to act in the field of infrastructure financing is set out in Article 171
TFEU which provides that the Union ‘may support projects of common interest supported by
Member States, (…) particularly through feasibility studies, loan guarantees or interest-rate
subsidies’.
Article 172 TFEU specifies that ‘“'the guidelines and other measures referred to in Article 171
(1) shall be adopted by the European Parliament and the Council, acting in accordance with
the ordinary legislative procedure and after consulting the Economic and Social Committee
and the Committee of the Regions.’”
Cross-border cooperation in the field of renewable energy is covered by Article 194(1) TFEU,
which provides that, ‘“[i]n the context of the establishment and functioning of the internal
market and with regard for the need to preserve and improve the environment, Union policy
on energy shall aim, in a spirit of solidarity between Member States, to: (a) ensure the
functioning of the energy market; (b) ensure security of energy supply in the Union; [and] (c)
promote energy efficiency and energy saving and the development of new and renewable
forms of energy’”.
For that purpose, as specified in Article 194(2) TFEU, ‘the European Parliament and the
Council, acting in accordance with the ordinary legislative procedure, shall establish the
measures necessary to achieve the objectives in Article 194(1).’
• Subsidiarity (for non-exclusive competence)
The scale and the type of the problems targeted by the CEF specifically require EU action
since they are by nature EU-wide and can be more efficiently resolved at EU level, leading to
overall greater benefits, more accelerated implementation and reduction of costs if the
Commission coordinates Member States’ actions.
EN 6 EN
EU funding is also the appropriate means to address the financing challenges that cross-border
projects typically face. The unequal distribution of project benefits and project costs between
the different Member States concerned makes it more difficult to finance these projects from
national funding sources alone.
• Proportionality
The proposal complies with the proportionality principle and falls within the scope for action
in the field of the trans-European networks, as defined in Article 170 TFEU, and Article 194
TFEU for cross-border projects in the field of renewable energy. The action envisaged by this
proposal is specifically limited to the EU dimension of transport and energy infrastructure and
cross-border deployment of renewable energy sources.
• Choice of the instrument
The legislative instrument and the type of measure (i.e. funding) are both set out in the TFEU,
which provides the legal basis for the CEF, and states that the tasks, priority objectives and
the organisation of the trans-European networks may be set out in Regulations.
3. RESULTS OF RETROSPECTIVE EVALUATIONS, STAKEHOLDER
CONSULTATIONS AND IMPACT ASSESSMENTS
• Retrospective evaluations/fitness checks of existing legislation
The ex post evaluation of CEF 2014-2020 and the interim evaluation of CEF 2021-2027 are
being conducted in parallel and work is well advanced.
For the CEF 2014-2020, in the transport sector all grant agreements have ended at the end of
2024 and projects are in the process of closing. So far, more than half of the projects have
been closed. Those have an absorption rate of 91.3% of the allocated budget, compared to the
amount of the latest grant agreement in force. Given this high absorption rate, a very large
part of the closed projects achieved their objectives as laid out in the grant agreement (for
example: progress on the implementation of cross-border sections, deployment of ERTMS,
improved hinterland connections for ports, improved inland waterways, etc.).
For the CEF 2014-2020 in the energy sector, the portfolio consisted of 149 actions, of which
141 actions have already been finalised. Some 8 actions, including large construction projects
in the electricity sector are ongoing. The overall financial progress of the entire CEF-1
portfolio at the end of 2024 was 58%.
Most of the transport budget and the larger share of the energy budget for the current CEF
2021-2027, has been allocated to projects. The CEF Transport military mobility budget (EUR
1.7 billion) was frontloaded after Russia’s full-scale invasion of Ukraine and is fully
allocated. The last funds were allocated in the beginning of 2024, leaving no resources for the
four remaining years of the current MFF. By the end of 2024, a few projects were finalised
(e.g. alternative fuels infrastructure, safe and secure parking areas). Under CEF Energy, some
166 PCIs and PMIs were selected under the first PCI/PMI list, out of which 41 were awarded
funding in the 2024 call, demonstrating the significant funding needs for cross-border energy
infrastructure.
Given that investment in infrastructure is a long-term process it is too early to measure results
of the CEF 2021-2027. The CEF has secured EUR 1.5 billion in non-reimbursable grant
support, enhancing EU-Ukraine cross-border connectivity and increased capacities via the
Solidarity Lanes and TEN-T corridors.
EN 7 EN
The preliminary findings of both CEF evaluations confirm that the programme has performed
well to date. The design of the instrument is appropriate to address a historic lack of funding
into cross-border infrastructure with high EU added value by ringfencing funding for these
projects into a dedicated instrument. It is consistent with other EU funding instruments and
policies, particularly on decarbonisation and environmental sustainability. Its governance
model (using competitive calls for proposals and direct management of funds through a
centralised agency) is well-suited to address the programme’s needs and provide a level
playing field for applicants.
CEF funding is consistently deemed indispensable, enabling crucial transport projects that
would otherwise face significant delays, reduced scope, or not be carried out at all due to
insufficient national or private funding. Beyond direct financial support, the CEF also
provides significant leverage, attracting additional public and private capital and acting as a
strategic anchor for investment.
The latest indication from the number and value of actions funded by topic and
subprogramme, as well as from the Programme Performance Statement for CEF 2021-2027,
is that the CEF is also on track to achieve most of its output targets, with a strong
performance in meeting expected outputs. While the full results and impacts will take time to
materialise, the programme’s current trajectory suggests positive outcomes in line with its
objectives.
As provided under Article 22(4) of Regulation (EU) 2021/1153 establishing the CEF4 and
currently in force, the Commission will publish a progress report in autumn this year on the
implementation of the programme from 2021 to 2024. It will present for each sector: the
different calls for proposals, the main areas of investment and how CEF was able to react to
recent crises.
• Stakeholder consultations
A series of public consultations covering the entire spectrum of future EU funding was
launched on 12 February and remained open until 6 May 2025. One consultation covered EU
funds implemented with Member States and regions and covered trans-European networks,
cohesion policy, common agricultural policy, fisheries policy, maritime policy and home
affairs.
On trans-European networks, stakeholders underline the critical importance of maintaining a
dedicated EU-level instrument for transport infrastructure, (such as CEF), separate from
national investment envelopes.
Public authorities from Central and Eastern Europe advocate for dedicated EU support to
upgrade and expand key TEN-T corridors, citing delays in electrification, bottlenecks in
freight capacity, and gaps in multimodal connectivity. For example, Polish and Romanian
respondents point to the need for better east-west links and interoperable signalling systems to
improve cross-border mobility.
In the energy domain, stakeholders highlight several persistent challenges that undermine the
effectiveness and inclusiveness of EU support for energy infrastructure. Public authorities
4 Article 22(4) of Regulation (EU) 2021/1153 of the European Parliament and of the Council of 7 July
2021 establishing the Connecting Europe Facility and repealing Regulations (EU) No 1316/2013 and
(EU) No 283/2014 (Text with EEA relevance) of 7 July 2021.
EN 8 EN
from Romania, Poland, Germany, and Spain stress that outdated grid infrastructure, especially
in rural and coal-dependent areas, acts as a bottleneck for deploying renewable energy. These
regions often lack sufficient transmission capacity or face delays in grid modernisation,
leading to stalled projects and missed climate targets. Regional and municipal actors,
particularly from Finland and the Baltic states, raise concerns about the slow progress of
cross-border interconnectors and fragmented planning between national and EU levels. This is
seen as weakening the resilience and interoperability of the European energy system,
particularly in the context of geopolitical tensions.
From March to May 2025, the Commission organised a European Citizens' Panel on a New
European Budget as a way for citizens to engage with EU institutions and have their say on
the EU policymaking process. The event included three sessions gathering 150 randomly
selected citizens, including an in-person session from 28-30 March, a second online session
(April 25-27), and a third and final session in Brussels (May 16-18). The participants, coming
from all 27 EU countries and representing the EU’s diversity, reflected on where the EU
Budget could bring the most added-value to Europeans and also highlighted the importance of
cross-border infrastructure, notably in transport. A considerable number of Member States
were asking for additional budget for military mobility during the mid-term review of the
current MFF in 2024, because of the exhausted CEF envelope. Many Member States also
regularly call for military mobility to be set as a priority for EU investments in transport
infrastructure, considering the overall geopolitical context and evolving security
developments in Council meetings and in formats related to security and defence.
• Impact assessment
The proposal is supported by the impact assessment nationally pre-allocated envelopes within
the post-2027 MFF, submitted to the Regulatory Scrutiny Board on 7 July 20205. The Board
issued its opinion on 10 July.
The impact assessment focused on the design and scope of National and Regional Partnership
Plans to implement future nationally pre-allocated envelopes. For investments in trans-
European transport (including military mobility), energy infrastructure and cross-border
cooperation in renewable energy, it assessed two options for financing cross-border projects:
implementation under nationally pre-allocated envelopes or a dedicated instrument for cross-
border projects.
The impact assessment compared experience gathered from implementing cross-border
projects under current national and regional plans (e.g. cohesion policy, the Recovery and
Resilience Facility) and experience within the CEF. It also assessed the administrative burden
for Member States’ authorities and project promoters for both options and discussed the
optimal use of EU funds.
The impact assessment concluded that directly-managed EU support would ensure the
predictability and stability needed by complex cross-border projects. Allocating grants
through a competitive and phased approach would make it possible to focus on the most
mature projects.
Closer links between EU funding and policy priorities of the national plans would enhance
their cross-border dimension. However, implementing cross-border infrastructure projects
through the plans would be more complex and costly for both Member States’ authorities and
project promoters. For the Member States to align their investment agendas with those of
neighbouring countries would be a lengthy process, both during the initial plan negotiations
EN 9 EN
and if there are any amendments. For example, Germany would have to coordinate its
national plan with eight neighbouring Member States; Hungary with five. In cases where the
process is delayed in one or more Member States, this could cause knock-on delays. The
Commission could support these coordination efforts (both during the negotiations and
through the provision of technical assistance via the plans), but the burden for Member States’
authorities would remain significant. This could also significantly increase the administrative
burden for project promoters, who would need to implement their cross-border projects under
several national plans and report within separate reporting and audit schemes (one per
Member State).
However, the impact assessment underscored that the National and Regional Partnership
Plans could cater for complementary investments for cross-border sections and for projects of
high EU relevance. These could include sections of national interest on the trans-European
networks and certain energy projects, such as national grid reinforcements that support cross-
border interconnections. Since these projects would be carried out within the territory of a
single Member State, their implementation would not entail the additional costs mentioned
above for cross-border projects involving more than one Member State. Allocations for these
projects could also be very relevant when combined with EU funding as part of centrally-
managed, cross-border, renewable energy auctions (auction-as-a-service model).
Directly managed EU support would ensure the predictability and stability needed by
complex cross-border projects. Awarding funding directly at EU level would make it possible
to maintain the long-term political commitment to strategic projects, to create sufficient
certainty, predictability and stability for other investors. Direct management would also
facilitate a coordinated implementation of military mobility projects to facilitate the seamless
and rapid transport of troops and military equipment across the EU.
Allocating grants in a competitive and phased approach under direct management would
ensure predictability of funding and make it possible to focus on the most mature (phases of)
projects. Furthermore, if there are significant delays during implementation or if project costs
are lower than initially anticipated (for instance through successful public procurement
procedures), any amounts not used by beneficiaries could be re-allocated to other projects.
The ‘use it or lose it’ principle of the CEF has ensured that funds are optimised within the
programme and are reallocated to other projects offering the best EU added value. For CEF
2014-2020, the ‘use it or lose it’ approach will make it possible to increase programme
absorption from about 80% to 90% based on current estimates.
Direct management of complex cross-border projects would also reduce administrative costs
for Member States’ authorities. Economies of scale under a cost-based delivery model help
keep the overall cost of direct management low. This is confirmed by the high productivity
ratio with each full-time equivalent staff member handling an average budget of EUR 25
million per year. This covers the entire lifecycle of programme management from the
publication of the call until audit, including feedback to policy and reporting. The direct
management of cross-border projects in transport and energy is cost-efficient and represents
0.39% of the EU funds over the 2021-2027 period, including all coordination and
management costs incurred in the Commission.
Having a separate instrument would however require efforts to ensure consistency with the
transport and energy investments that would be included in the plans.
EN 10 EN
The Commission proposal reflects the benefits of a dedicated instrument for cross-border
projects identified in the impact assessment.
• Simplification
The Commission's global simplification efforts under the post-MFF 2027 will also apply to
the CEF programme delivery.
The CEF is designed to reduce overlaps and complexity. For transport and energy
infrastructure, the CEF will thus focus on projects with a clear cross-border dimension that are
complementary to investments under the National and Regional Partnership Plans.
The rules of the National and Regional Partnership Plans and CEF are aligned as much as
possible. Clear delimitation between CEF and National and Regional Partnership Plans and
alignment of rules will reduce the current complexities of the EU funding landscape and
benefit both Member State authorities and beneficiaries.
For further simplification, the CEF will rely, where appropriate, on simplified cost options
(lump sums, unit costs) when allocating grants. The regulation will also provide for a further
simplified legal framework for the CEF through the possibility to move provisions and
conditions to work programmes.
Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance
Regulation] proposed as part of the MFF for the period post-2027 aims to reduce the
inconsistency and complexity of monitoring and reporting requirements. Monitoring,
evaluation and reporting arrangements will not be individually set for every financing
instrument such as the CEF, but simplified and streamlined throughout the whole MFF,
including for information, communication and visibility.
4. BUDGETARY IMPLICATIONS
The Commission’s proposal for the CEF includes the following amount: EUR 81 428 000 000
(in current prices).
Based on the positive experience from the implementation of the previous CEF programmes,
the Commission proposes to continue the implementation of the new programme, for both
CEF sectors, with direct management by the Commission and an executive agency.
As detailed in the Legislative Financial and Digital Statement, the proposed budget will cover
all the necessary operational expenditure for the implementation of the CEF programme, plus
the cost of human resources and other administrative expenditure in connection with the
management of the programme.
5. OTHER ELEMENTS
• Detailed explanation of the specific provisions of the proposal
Article 1 – Subject matter
This article introduces the subject matter of the Regulation, which is to establish the
Connecting Europe Facility programme.
EN 11 EN
Article 2 – Definitions
This article sets out the definitions relating to the Regulation.
Article 3 – Programme objectives
This article sets out the general objective of the programme and the specific objectives for
each sector.
Article 4 – Budget
This article sets outs the indicative financial allocation for the programme.
The article includes a provision to cover all the necessary expenses pertaining to preparatory,
monitoring, control, audit, evaluation and other activities; necessary studies, meetings of
experts, corporate IT tools and any other technical and administrative assistance needed in
connection with the management of the programme.
Article 5 – Additional resources
This article sets the conditions for the additional financial contributions to the programme.
Article 6 – Alternative, combined and cumulative funding
This article ensures that an action that has received a contribution under the programme may
also receive a contribution from any other EU programme, if the contributions do not cover
the same costs.
Article 7 – Third Countries associated to the programme
This article sets the conditions under which third countries may participate in the programme.
Article 8 – Implementation and forms of Union funding
This article sets out the management mode of CEF as direct management. All forms of
funding and financial support envisaged under the Financial Regulation can be used. Support
to Financial Instruments or budgetary guarantees shall be channelled through the ECF
(European Competitiveness Fund) investment instrument or the GE (Global Europe ) delivery
mechanism.
Article 9 – Eligibility
This article sets out the criteria for persons and entities to be eligible for the programme.
Article 10 –Complementary rules of grants
This article sets out the conditions for reduction, suspension, termination or transfer of the
grants to ensure sound financial management and to mitigate the risks linked with significant
delays that can occur in the case of major infrastructure projects. It provides that grants may
be reduced or terminated if the action for which the grant was made has not started within one
year following the starting date indicated in the grant agreement or if a review of the progress
of the action finds that the implementation of the action has suffered such major delays that
EN 12 EN
the objectives of the action are likely not to be achieved. The article provides for
simplifications of grant agreements relating to a global project.
This article also sets the maximum co-financing rates applicable to each sector.
Article 11 – Cross-border projects in the field of renewable energy
This article sets out the objectives and conditions for cross-border projects in the field of
renewable energy. It provides general criteria and procedural requirements to select these
projects and empowers the Commission to lay down specific criteria and the details of the
process for such projects by means of a delegated act. This article also provides for a
possibility to transfer funds towards the Union renewable energy financing mechanism set up
under Regulation (EU) 2018/1999.
Article 12 – Work programme
This article provides that the programme will be implemented by work programmes referred
to in the Article 110 of the Regulation (EU, Euratom) 2024/2509.
Article 13 – Delegated acts
This article allows the Commission to adopt delegated acts relating to the annex to this
Regulation.
Article 14 – Exercise of the delegation
This article contains standard provisions on the delegation of powers.
Article 15 – Committee procedure
This article covers the CEF committee within the meaning of Regulation (EU) No 182/2011.
It specifies that the advisory procedure set out in Article 4 of Regulation (EU) No 182/2011
will apply.
Article 16 – Amendments to Regulation (EU) 2024/1679
This article provides for an amendment to Article 48 of Regulation (EU) 2024/1679 on Union
guidelines for the development of the trans-European transport network. The aim is to shift
the legal base of the Commission Implementing Act on dual-use infrastructure standards
currently provided for in the CEF Regulation (Article 12(2) of Regulation (EU) 2024/1679).
For this implementing act, Regulation (EU) 2024/1679 laying down the infrastructure
standards for the TEN-T network is a more appropriate legal base than a CEF spending
programme. However, the Commission Implementing Regulation (EU) 2021/1328 will
continue to apply until the Commission adopts a new implementing act in accordance with
Article 48.3 of the Regulation (EU) 2024/1679.
Article 17 – Repeal
This article repeals the previous CEF Regulation (Regulation (EU) No 2021/1153).
Article 18 – Transitional provisions
EN 13 EN
This article provides for the transitional provisions relating to the CEF actions and to the
technical and administrative assistance.
Article 19 – Entry into force and application
This article states that the Regulation shall apply from 1 January 2028.
Annex
EN 14 EN
2025/0221 (COD)
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing the Connecting Europe Facility for the period 2028-2034, amending
Regulation (EU) 2024/1679 and repealing Regulation (EU) 2021/1153
THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular
Article 172, first paragraph, and Article 194(2) thereof,
Having regard to the proposal from the European Commission,
After transmission of the draft legislative act to the national parliaments,
Having regard to the opinion of the European Economic and Social Committee1,
Having regard to the opinion of the Committee of the Regions2,
Acting in accordance with the ordinary legislative procedure
Whereas:
(1) This Regulation establishes the ‘Connecting Europe Facility’ Programme (the
‘Programme’) with a view to accelerating investment in the field of trans-European
networks for transport and energy and leveraging funding from both the public and the
private sectors, while increasing legal certainty and respecting the principle of
technological neutrality. It also aims to facilitate cross-border cooperation in the field
of renewable energy, such as through the support of cross-border projects. The
Programme should facilitate synergies between the transport and energy sectors to be
harnessed to the full extent, thus enhancing the effectiveness of Union action and
enabling implementing costs to be optimised. This Regulation lays down a financial
envelope for the Programme. For the purpose of this Regulation, current prices are
calculated by applying a fixed 2% deflator.
(2) Efficient transportation of people3 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
1 *OJ L.., p. 2 *OJ L.., p. 3 Including persons with reduced mobility and disabilities.
EN 15 EN
future of competitiveness of Europe4, 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 Council5
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 20306 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 Council7 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
4 Mario Draghi, “A competitiveness strategy for Europe”, September 2024,
https://commission.europa.eu/topics/eu-competitiveness/draghi-report_en 5 Regulation (EU) 2024/1679 of the European Parliament and of the Council of 13 June 2024 on Union
guidelines for the development of the trans-European transport network, amending Regulations (EU)
2021/1153 and (EU) No 913/2010 and repealing Regulation (EU) No 1315/2013 (OJ L, 2024/1679,
28.6.2024) 6 Joint White Paper for European Defence Readiness 2030, JOIN(2025) 120 final, 19 March 2025. 7 Regulation (EU) 2021/1153 of the European Parliament and of the Council of 7 July 2021 establishing
the Connecting Europe Facility and repealing Regulations (EU) No 1316/2013 and (EU) No 283/2014
(OJ L 249, 14.7.2021, p. 38, ELI: http://data.europa.eu/eli/reg/2021/1153/oj).
EN 16 EN
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 Deal8 and the Action Plan
for Affordable Energy9, 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
8 COM/2025/85 final 9 COM/2025/79 final
EN 17 EN
benefit from the clean transition. According to the Monitoring Report on electricity
infrastructure10 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 Council11.
(11) Regulation (EU) 2022/869 of the European Parliament and of the Council12 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.
10 ACER: Electricity infrastructure development to support a competitive and sustainable energy system,
2024 Monitoring Report,
https://www.acer.europa.eu/sites/default/files/documents/Publications/ACER_2024_Monitoring_Electri
city_Infrastructure.pdf. 11 Regulation (EU) 2018/1999 of the European Parliament and of the Council of 11 December 2018 on the
Governance of the Energy Union and Climate Action, amending Regulations (EC) No 663/2009 and
(EC) No 715/2009 of the European Parliament and of the Council, Directives 94/22/EC, 98/70/EC,
2009/31/EC, 2009/73/EC, 2010/31/EU, 2012/27/EU and 2013/30/EU of the European Parliament and
of the Council, Council Directives 2009/119/EC and (EU) 2015/652 and repealing Regulation (EU) No
525/2013 of the European Parliament and of the Council (OJ L 328, 21.12.2018, p. 1, ELI:
http://data.europa.eu/eli/reg/2018/1999/oj). 12 Regulation (EU) 2022/869 of the European Parliament and of the Council of 30 May 2022 on
guidelines for trans-European energy infrastructure, amending Regulations (EC) No 715/2009, (EU)
2019/942 and (EU) 2019/943 and Directives 2009/73/EC and (EU) 2019/944, and repealing Regulation
(EU) No 347/2013 ( OJ L 152, 3.6.2022, p. 45, ELI: http://data.europa.eu/eli/reg/2022/869/oj).
EN 18 EN
(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) 2018/199913, 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 Council14. 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
13 Regulation (EU) 2018/1999 of the European Parliament and of the Council of 11 December 2018 on the
Governance of the Energy Union and Climate Action, amending Regulations (EC) No 663/2009 and
(EC) No 715/2009 of the European Parliament and of the Council, Directives 94/22/EC, 98/70/EC,
2009/31/EC, 2009/73/EC, 2010/31/EU, 2012/27/EU and 2013/30/EU of the European Parliament and
of the Council, Council Directives 2009/119/EC and (EU) 2015/652 and repealing Regulation (EU) No
525/2013 of the European Parliament and of the Council (Text with EEA relevance) 14 Directive (EU) 2018/2001 of the European Parliament and of the Council of 11 December 2018 on the
promotion of the use of energy from renewable sources (OJ L 328, 21.12.2018, p. 82, ELI:
http://data.europa.eu/eli/dir/2018/2001/oj).
EN 19 EN
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 Council15 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
15 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,
ELI: http://data.europa.eu/eli/reg/2024/2509/oj).
EN 20 EN
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 Union16 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 powers17.
(27) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)
No 883/2013 of the European Parliament and of the Council18, Council Regulations
(EC, Euratom) No 2988/9519, (Euratom, EC) No 2185/9620 and (EU) 2017/193921, 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
16 COM/2025/124 final 17 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 Member States of
the Commission’s exercise of implementing powers, OJ L 55, 28.2.2011, p. 13–18. 18 Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of 11
September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF) and
repealing Regulation (EC) No 1073/1999 of the European Parliament and of the Council and Council
Regulation (Euratom) No 1074/1999,(OJ L248, 18.9.2013, p. 1.
ELI: http://data.europa.eu/eli/reg/2013/883/oj) 19 Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European
Communities financial interests (OJ L312, 23.12.95, p.1).
LI: http://data.europa.eu/eli/reg/1995/2988/oj). 20 Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks
and inspections carried out by the Commission in order to protect the European Communities' financial
interests against fraud and other irregularities (OJ L292, 15.11.96, p.2).
ELI: http://data.europa.eu/eli/reg/1996/2185/oj). 21 Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the
establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L283, 31.10.2017, p.1).
ELI: http://data.europa.eu/eli/dir/2017/1371/oj).
EN 21 EN
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 Council22. 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) 2021/176423, 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
22 Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight
against fraud to the Union's financial interests by means of criminal law (OJ L 198, 28.7.2017, p. 29). 23 Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and
Territories with the European Union including relations between the European Union on the one hand,
and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association,
including Greenland) (OJ L 355, 7.10.2021, p. 6, ELI: http://data.europa.eu/eli/dec/2021/1764/oj).
EN 22 EN
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-Making24. 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) 2021/132825 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.
HAVE ADOPTED THIS REGULATION:
Article 1
Subject matter
This Regulation establishes the Connecting Europe Facility (the ‘Programme’) and lays down
the objectives of the Programme, its budget for the period 2028-2034, the forms of Union
funding and the rules for providing such funding.
Article 2
Definitions
For the purpose of this Regulation, the following definitions apply:
1. ‘action’ means any activity which has been identified as financially and technically
independent, has a set timeframe and is necessary for the implementation of a
project;
2. ‘trans-European transport network’ means the trans-European transport network
referred to in Regulation (EU) 2024/1679;
24 OJ L 123, 12.5.2016, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2016/512/oj. 25 Commission Implementing Regulation (EU) 2021/1328 of 10 August 2021 specifying the infrastructure
requirements applicable to certain categories of dual-use infrastructure actions pursuant to Regulation
(EU) 2021/1153 of the European Parliament and of the Council (OJ L 288, 11.8.2021, p. 37, ELI:
http://data.europa.eu/eli/reg_impl/2021/1328/oj).
EN 23 EN
3. ‘project of common interest’ means a project of common interest as defined in
Article 3, point (1), of Regulation (EU) 2024/1679 or Article 2, point (5), of
Regulation (EU) 2022/869;
4. ‘sustainable trans-European transport network’ means a trans-European transport
network fulfilling the requirements laid down in Articles 5 and 45 of Regulation
(EU) 2024/1679;
5. ‘smart trans-European transport network’ means a trans-European transport network
fulfilling the requirements laid down in Articles 43 and 45 of Regulation (EU)
2024/1679
6. ‘resilient trans-European transport network’ means a trans-European transport
network fulfilling the requirements laid down in Article 46 of Regulation (EU)
2024/1679;
7. ‘military mobility’ means the ability of the European Union and its Member States to
rapidly and effectively transport, move, and deploy military personnel, equipment,
and supplies within and across the borders of Member States, ensuring timely and
effective response of Member States Armed forces;
8. ‘studies’ means activities needed to prepare project implementation, such as
preparatory, mapping, feasibility, evaluation, testing and validation studies, including
in the form of software, and any other technical support measure, including prior
action to define and develop a project and decide on its financing, such as
reconnaissance of the sites concerned and preparation of the financial package;
9. ‘works’ means the purchase, supply and deployment of components, systems and
services including software, the carrying out of development and construction and
installation activities relating to a project, the acceptance of installations and the
launching of a project;
10. ‘project of mutual interest’ means a project of mutual interest as defined in Article 2,
point (6), of Regulation (EU) 2022/869;
11. ‘cross-border project in the field of renewable energy’ means any of the following:
(a) a project for the production of renewable energy which is included in a
cooperation agreement within the meaning of Articles 8, 9, 11 or 13 of
Directive (EU) 2018/2001;
(b) a storage project, including co-located energy storage within the meaning of
Article 2, point (44d), of Directive (EU) 2018/2001, that supports the
integration of renewable energy into the energy system of the Union, except for
energy storage facilities within the meaning of Annex II, point (1)(c), of
Regulation (EU) 2022/869 and that is included in a similar arrangement
between two or more Member States, or between one or more Member States
and one or more third countries.
Article 3
Programme objectives
1. The general objectives of the Programme are to build, develop, secure, modernise
and complete the trans-European networks in the transport and energy sectors, with
the intention of supporting a functioning single market and fostering cohesion; to
EN 24 EN
facilitate military mobility on the trans-European transport networks; to facilitate
cross-border cooperation in the field of renewable energy; and to facilitate synergies
among the transport and energy sectors.
2. The Programme has the following specific objectives:
(a) in the transport sector:
(i) to contribute to the development of projects of common interest relating
to interconnected, interoperable, decarbonised, smart, safe, sustainable,
resilient, secure and multimodal transport networks in accordance with
Regulation (EU) 2024/1679, in particular through:
(1) actions relating to the projects of common interest with cross-
border dimension implementing the trans-European transport
network, including actions on the indicative sections listed in the
Annex to this Regulation;
(2) actions relating to the projects of common interest with Union
dimension relating to the completion of a smart, resilient,
decarbonised and sustainable trans-European transport network;
(3) actions relating to the projects of common interest with cross-
border dimension with third countries implementing the trans-
European transport network in accordance with Article 9 of
Regulation (EU) 2024/1679;
(ii) to adapt parts of the trans-European transport network for the dual use of
the transport infrastructure with a view to improving both civilian and
military mobility, focusing on the four EU Priority Military Mobility
Corridors identified by Member States in Annex II to the Military
Requirements for Military Mobility within and beyond the Union, as
approved by the Council on 18 March 2025 and with reference ST
6728/25 ADD1;
(b) in the energy sector,
(i) to contribute to the development of projects of common interest and
projects of mutual interest as set out in Article 18 of Regulation (EU)
2022/869, with a view to promoting the completion of the Energy Union,
the integration of an efficient and competitive internal energy market,
and the interoperability of networks across borders and sectors, to
facilitating decarbonisation of the economy, to promoting energy
efficiency and to ensuring resilience and security of supply;
(ii) to facilitate cross-border cooperation in the field of renewable energy,
through the support of cross-border projects in the field of renewable
energy or through competitive bidding for new renewable energy projects
under the Union renewable energy financing mechanism established by
Article 33 of Regulation (EU) 2018/1999, where the conditions referred
to in of Article 11(5) of this Regulation are met, with a view to achieving
the Union’s objectives in terms of decarbonisation, competitiveness,
completion of the internal energy market, resilience and security of
supply in a cost-efficient manner.
EN 25 EN
Article 4
Budget
1. The indicative financial envelope for the implementation of the Programme for the
period 2028- 2034 is set at EUR 81 428 000 000 in current prices.
2. The distribution of the amount referred to in paragraph 1 shall be indicatively as
follows:
(a) EUR 51 515 000 000 for the specific objectives on transport and military
mobility referred to in Article 3(2), point (a);
(b) EUR 29 912 000 000 for the specific objectives on energy referred to in Article
3(2), point (b).
3. Budgetary commitments for activities extending over more than one financial year
may be broken down over several years into annual instalments.
4. Appropriations may be entered in the Union budget beyond 2034 to cover the
expenses necessary and to enable the management of actions not completed by the
end of the Programme.
5. The financial envelope referred to in paragraph 1 of this Article and the amounts of
additional resources referred to in Article 5 may also be used for technical and
administrative assistance for the implementation of the Programme and of the sector-
specific guidelines in Regulation (EU) 2024/1679 or Regulation (EU) 2022/869, such
as preparatory, monitoring, control, audit and evaluation activities, corporate
information technology systems and platforms, information and communication
activities, including corporate communication on the political priorities of the Union,
and all other technical and administrative assistance or staff-related expenses
incurred by the Commission for the management of the Programme.
Article 5
Additional resources
1. Member States, Union institutions, bodies and agencies, third countries, international
organisations, international financial institutions, or other third parties may make
additional financial or non-financial contributions to the Programme, without
prejudice to Articles 107 and 108 TFEU. Additional financial contributions shall
constitute external assigned revenue within the meaning of Article 21(2), points (a),
(d), or (e), or Article 21(5) of Regulation (EU, Euratom) 2024/2509.
2. Resources allocated to Member States under shared management may, at their
request, be made available to the Programme. The Commission shall implement
those resources directly or indirectly in accordance with Article 62(1), point (a) or (c)
of Regulation (EU, Euratom) 2024/2509. They shall be additional to the amount
referred to in Article 4(1) of this Regulation. Those resources shall be used for the
benefit of the Member State concerned. Where the Commission has not entered into
a legal commitment under direct or indirect management for additional amounts thus
made available to the Programme, the corresponding uncommitted amounts may, at
the request of the Member State concerned, be transferred back to one or more
respective source programmes or their successors.
EN 26 EN
Article 6
Alternative, combined and cumulative funding
1. The Programme shall be implemented in coordination with other Union programmes.
An action that has received a Union contribution from another programme may also
receive a contribution under the Programme. The rules of the relevant Union
programme shall apply to the corresponding contribution or a single set of rules may
be applied to all contributions under the Programme and a single legal commitment
may be concluded. If the Union contributions is based on eligible cost, the
cumulative support from the Union budget shall not exceed the total eligible costs of
the action and may be calculated on a pro-rata basis in accordance with the
documents setting out the conditions for support.
2. Award procedures under the Programme may be conducted jointly under direct or
indirect management with Member States, Union institutions, bodies and agencies,
third countries, international organisations, international financial institutions, or
other third parties (‘partners to the joint award procedure’), provided the protection
of the financial interests of the Union is ensured. Such procedures shall be subject to
a single set of rules and lead to the conclusion of single legal commitments. For that
purpose, the partners to the joint award procedure may make resources available to
the Programme in accordance with Article 5 of this Regulation, or the partners may
be entrusted with the implementation of the award procedure, where applicable in
accordance with Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509.In
joint award procedures, representatives of the partners to the joint award procedure
may also be members of the evaluation committee referred to in Article 153(3) of
Regulation (EU, EURATOM) 2024/2509.
Article 7
Third countries associated to the Programme
1. The Programme may be opened to the participation of the following third countries
through full or partial association, in accordance with the objectives laid down in
Article 3 and in accordance with the relevant international agreements or any
decisions adopted under the framework of those agreements and applicable to:
(a) members of the European Free Trade Association which are members of
the European Economic Area, as well as European micro-states;
(b) acceding countries, candidate countries and potential candidates;
(c) European Neighbourhood Policy countries;
(d) other third countries.
2. The association agreements for participation in the Programme shall:
(a) ensure a fair balance as regards the contributions and benefits of the third
country participating in the Programme;
(b) lay down the conditions of participation in the programmes, including the
calculation of financial contributions, consisting of an operational
contribution and a participation fee, to a programme and its general
administrative costs;
EN 27 EN
(c) not confer on the third country any decision-making power in the
Programme;
(d) guarantee the rights of the Union to ensure sound financial management
and to protect its financial interests;
(e) where relevant, ensure the protection of security and public order
interests of the Union.
For the purposes of point (d), the third country shall grant the necessary rights and access
required under Regulations (EU, Euratom) 2024/2509 and (EU, Euratom) No 883/2013, and
guarantee that enforcement decisions imposing a pecuniary obligation on the basis of Article
299 TFEU, as well as judgements and orders of the Court of Justice of the European Union,
are enforceable.
Article 8
Implementation and forms of Union funding
1. The Programme shall be implemented in accordance with Regulation (EU, Euratom)
2024/2509 under direct management or under indirect management with entities
referred to in Article 62(1), point (c), of that Regulation.
2. Union funding may be provided in any form in accordance with Regulation (EU,
Euratom) 2024/2509, in particular grants, prizes, procurement, and non-financial
donations.
3. Where Union support is provided in the form of a budgetary guarantee or a financial
instrument, including where combined with non-repayable support in a blending
operation, it shall be exclusively provided through the ECF InvestEU Instrument or
GE delivery mechanism and implemented in accordance with the applicable rules of
the ECF InvestEU Instrument and GE delivery mechanism through agreements
concluded for that type of support under the ECF InvestEU Instrument or GE
delivery mechanisms.
4. Union support in the form of a budgetary guarantee shall be provided within the
maximum amount of the budgetary guarantee established by the ECF or GE
Regulation.
5. Where the Programme makes use of the ECF InvestEU Instrument or GE delivery
mechanism, it shall provide the provisioning for the budgetary guarantee and the
financing to financial instruments, including when combined with non-repayable
support in the form of a blending operation.
Article 9
Eligibility
1. Eligibility criteria shall be set to support achievement of the objectives laid down in
Article 3 of this Regulation and in accordance with Regulation (EU, Euratom)
2024/2509.
2. In award procedures under direct or indirect management, one or more of the
following legal entities may be eligible to provide or to receive Union support:
(a) entities established in a Member States;
EN 28 EN
(b) entities established in an associated third country;
(c) international organisations;
(d) other entities established in non-associated third countries where the
funding of such entities is essential for implementing the action and
contributes to the objectives laid down in Article 3.
3. In addition to Article 168(2) and (3) of Regulation (EU, Euratom) 2024/2509,
associated third countries referred to in Article 7(1) of this Regulation may, where
relevant, participate in and benefit from any procurement mechanisms set out in
Article 168(2) and (3) of Regulation (EU, Euratom) 2024/2509. Rules applicable to
Member States shall be applied, mutatis mutandis, to participating associated third
countries.
4. Award procedures affecting security or public order, in particular concerning
strategic assets and interests of the Union or its Member States, shall be restricted in
accordance with Article 136 of Regulation (EU, Euratom) 2024/2509. In accordance
with Article 136 of the Financial Regulation, eligibility restrictions shall apply to
high-risk suppliers, in line with EU law, for security reasons.
5. As regards actions referred to in Article 3(2), point (a), of this Regulation, the
assessment of proposals against the award criteria shall, where applicable, ensure that
proposed actions are consistent with the corridor work plans and implementing acts
referred to in Articles 54 and 55 of Regulation (EU) 2024/1679 and that they take
into account the consultative opinion of the responsible European Coordinator
pursuant to Article 52(9) of that Regulation.
6. Grant proposals shall be submitted by one or more Member States or with the
approval of the Member States concerned by the project of common interest or
project of mutual interest.
7. Award procedures for grants or parts thereof, that are already fully financed from
other public or private sources, except contributions from the Union in the context of
synergy actions referred to in Article 6, shall not be eligible for funding.
8. The work programme referred to in Article 110 of Regulation (EU, Euratom)
2024/2509 or the documents related to the award procedure may further specify the
eligibility criteria set out in this Regulation or set additional eligibility criteria for
specific actions.
Article 10
Complementary rules for grants
1. In addition to the grounds for reduction set out in Article 132(4) of Regulation (EU,
Euratom) 2024/2509, the amount of the grant may be reduced under the following
conditions:
(a) as regards studies, where the action has not started within one year following
the starting date indicated in the grant agreement;
(b) as regards works, where the action has not started within two years following
the starting date indicated in the grant agreement;
(c) following a review of the progress of the action, it is established that the
implementation of the action has suffered such major delays that the objectives
of the action are unlikely to be achieved;
EN 29 EN
2. The grant agreement may be amended or terminated on the basis of the conditions set
out in paragraph 1.
3. Available commitment appropriations resulting from the application of paragraph 1
or 2 shall be made available under this Programme.
4. Without prejudice to the use of competitive procedures wherever appropriate in
accordance with Article 192(1) of Regulation (EU, Euratom) 2024/2509 and in
addition to Article 198 of that Regulation, the work programme referred to in Article
12 of this Regulation may, where duly justified with reference to the need to
facilitate completion of a global project, specify an action and beneficiaries, and set
out an amount up to which proposals may be invited for extension of ongoing or
completed actions under the Programme, while ensuring equal treatment and
transparency in line with Article 191 of Regulation (EU, Euratom) 2024/2509. The
award for ongoing actions may take the form of an amendment to the original action
by adding new activities and increasing the maximum Union contribution. The
commitment appropriations referred to in paragraph 3 of this Article shall be used to
cover the amounts reserved in the work programme for such awards.
5. For studies, the amount of Union financial support shall not exceed 50% of the total
eligible costs.
6. For works relating to the specific objective referred to in Article 3(2), point (a), the
amount of Union financial support shall not exceed 50% of the total eligible cost.
The co-financing rate for actions taking place in Member States with a per capita
GNI of less than 90 % of the Union GNI, the amount of Union financial support shall
not exceed 75% of the total eligible cost.
7. For works relating to the specific objectives referred to in Article 3(2), point (b), the
following shall apply:
(a) the amount of Union financial support shall not exceed 50% of the total
eligible cost;
(b) the co-financing rates referred to in point (a) may be increased to a
maximum of 75% of the total eligible cost for actions contributing to the
development of projects of common interest which, based on the
evidence referred to in Article 18(2) of Regulation (EU) 2022/869,
provide a high degree of regional or Union-wide security of supply,
strengthen the solidarity of the Union or offer highly innovative
solutions.
8. In each of the transport and energy sectors, as regards works undertaken in outermost
regions, a specific maximum co-financing rate of 60% shall apply.
9. The support provided by the Programme shall accelerate or boost investments by
addressing market failures or sub-optimal investment situations, in a proportionate
manner, avoiding duplication or crowding out, and by incentivising private funding
and shall have Union added-value.
Article 11
Cross-border projects in the field of renewable energy
1. The Commission shall conduct, at least once a year, a selection of cross-border
projects in the field of renewable energy, based on the criteria and procedure set out
EN 30 EN
in this Article, in the delegated act referred to in paragraph 4 of this Article and the
related work programme referred to in Article 12.
2. 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.
3. 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.
4. By (day month year) (or 12 months after entry into force of this act), the Commission
shall adopt a delegated act in accordance with Article 14 supplementing this
Regulation by laying down the specific criteria and procedure for the selection of
cross-border projects in the field of renewable energy.
5. The Commission may decide to allocate the Programme budget envisaged for cross-
border projects in the field of renewable energy to the Union renewable energy
financing mechanism established by Article 33 of Regulation (EU) 2018/1999 where
it can achieve the specific objective referred to in Article 3(2), point (b)(ii) of the
Regulation, and where it can contribute to the reduction of the costs of capital for
renewable energy projects. The total contribution made for the period from 1 January
2028 to 31 December 2034 shall not exceed 5% of the budget of this Programme
envisaged for the specific objectives referred to in Article 3(2), point (b).
Article 12
Work programme
1. The Programme shall be implemented by work programmes referred to in Article
110 of Regulation (EU, Euratom) 2024/2509.
2. The work programmes shall set out, where applicable, the activities and related
amounts of Union support to be implemented through the ECF InvestEU Instrument
and GE delivery mechanism.
3. The work programmes shall be adopted by the Commission by means of
implementing acts. Those implementing acts shall be adopted in accordance with the
advisory procedure referred to in Article 15(3).
Article 13
Delegated acts
Subject to Article 172, second paragraph, TFEU, the Commission is empowered to adopt
delegated acts in accordance with Article 15 of this Regulation to amend the Annex to this
Regulation regarding the indicative list of projects.
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Article 14
Exercise of the delegation
1. The power to adopt delegated acts is conferred on the Commission subject to the
conditions laid down in this Article.
2. The power to adopt delegated acts referred to in Article 11(4) and 13 shall be
conferred on the Commission until 31 December 2034.
3. The delegation of power referred to in Article 11(4) and 13 may be revoked at any
time by the European Parliament or by the Council. A decision to revoke shall put an
end to the delegation of power specified in that decision. It shall take effect the day
following the publication of the decision in the Official Journal of the European
Union or at a later date specified therein. It shall not affect the validity of any
delegated acts already in force.
4. Before adopting a delegated act, the Commission shall consult experts designated by
each Member State in accordance with the principles laid down in the
Interinstitutional Agreement of 13 April 2016 on Better Law-Making.
As soon as it adopts a delegated act, the Commission shall notify it simultaneously to
the European Parliament and to the Council.
5. A delegated act adopted pursuant to Article 11(4) and 413 shall enter into force only
if no objection has been expressed either by the European Parliament or by the
Council within a period of two months of notification of that act to the European
Parliament and the Council or if, before the expiry of that period, the European
Parliament and the Council have both informed the Commission that they will not
object. That period shall be extended by two months at the initiative of the
European Parliament or of the Council. Representatives of third countries or
international organisations shall not be present in deliberations on matters related to
Article 12(3) of this Regulation.
Article 15
Committee procedure
1. The Commission shall be assisted by a committee. That committee shall be a
committee within the meaning of Regulation (EU) No 182/2011.
2. For matters concerning the objectives referred to in Article 3(2), point (a), the
committee shall meet in the following configuration: “CEF Transport”.
For matters concerning the objectives referred to in Article 3(2), point (b), the
committee shall meet in the following configuration: “CEF Energy”
3. Where reference is made to this paragraph, Article 4 of Regulation (EU) No
182/2011 shall apply.
4. Where the opinion of the committee is to be obtained by written procedure, that
procedure shall be terminated without result when, within the time-limit for delivery
of the opinion, the chair of the committee so decides or a simple majority of
committee members so request.
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5. In accordance with international agreements concluded by the Union, representatives
of third countries or international organisations may be invited as observers in the
meetings of the committee under the conditions laid down in its rules of procedure,
taking into account security and public order of the Union or its Member States.
Representatives of third countries or international organisations shall not be present
in deliberations on matters related to Article 9 of this Regulation.
Article 16
Amendment to Regulation (EU) 2024/1679
In Article 48 of Regulation (EU) 2024/1679, the following paragraph 3 is added:
‘3. The Commission may adopt an implementing act specifying the infrastructure
requirements applicable to certain categories of infrastructure, which addresses both
civilian and defence needs (‘dual use infrastructure’).
That implementing act shall be adopted in accordance with the examination
procedure referred to in Article 61(3).’
Article 17
Repeal
Regulation (EU) 2021/1153 is repealed with effect from 1 January 2028.
Article 18
Transitional provisions
1. This Regulation shall not affect the continuation or modification of the actions
concerned, until their closure, under Regulations (EU) No 1316/2013 and (EU)
No 2021/1153, which shall continue to apply to the actions concerned until their
closure.
2. The financial envelope for the Programme may also cover technical and
administrative assistance expenses necessary to ensure the transition between the
Programme and the measures adopted under Regulation (EU) No 2021/1153.
Article 19
Entry into force and application
This Regulation shall enter into force on the twentieth day following that of its publication in
the Official Journal of the European Union.
It shall apply from 1 January 2028.
This Regulation shall be binding in its entirety and directly applicable in all Member States.
EN 33 EN
Done at Brussels,
For the European Parliament For the Council
The President The President
EN 1 EN
LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT
1. FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3
1.1. Title of the proposal/initiative ...................................................................................... 3
1.2. Policy area(s) concerned .............................................................................................. 3
1.3. Objective(s) .................................................................................................................. 3
1.3.1. General objective(s) ..................................................................................................... 3
1.3.2. Specific objective(s) ..................................................................................................... 3
1.3.3. Expected result(s) and impact ...................................................................................... 3
1.3.4. Indicators of performance ............................................................................................ 3
1.4. The proposal/initiative relates to: ................................................................................. 4
1.5. Grounds for the proposal/initiative .............................................................................. 4
1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative ............................................................ 4
1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section 'added value of EU involvement' is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone. ................................................................................. 4
1.5.3. Lessons learned from similar experiences in the past .................................................. 4
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments ....................................................................................... 5
1.5.5. Assessment of the different available financing options, including scope for
redeployment ................................................................................................................ 5
1.6. Duration of the proposal/initiative and of its financial impact .................................... 6
1.7. Method(s) of budget implementation planned ............................................................. 6
2. MANAGEMENT MEASURES................................................................................... 8
2.1. Monitoring and reporting rules .................................................................................... 8
2.2. Management and control system(s) ............................................................................. 8
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed .................. 8
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them............................................................................................................ 8
2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure) ........................................... 8
2.3. Measures to prevent fraud and irregularities ................................................................ 9
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10
3.1. Heading(s) of the multiannual financial framework and expenditure budget line(s)
affected ....................................................................................................................... 10
EN 2 EN
3.2. Estimated financial impact of the proposal on appropriations ................................... 12
3.2.1. Summary of estimated impact on operational appropriations.................................... 12
3.2.1.1. Appropriations from voted budget ............................................................................. 12
3.2.1.2. Appropriations from external assigned revenues ....................................................... 17
3.2.2. Estimated output funded from operational appropriations......................................... 22
3.2.3. Summary of estimated impact on administrative appropriations ............................... 24
3.2.3.1. Appropriations from voted budget .............................................................................. 24
3.2.3.2. Appropriations from external assigned revenues ....................................................... 24
3.2.3.3. Total appropriations ................................................................................................... 24
3.2.4. Estimated requirements of human resources.............................................................. 25
3.2.4.1. Financed from voted budget....................................................................................... 25
3.2.4.2. Financed from external assigned revenues ................................................................ 26
3.2.4.3. Total requirements of human resources ..................................................................... 26
3.2.5. Overview of estimated impact on digital technology-related investments ................ 28
3.2.6. Compatibility with the current multiannual financial framework.............................. 28
3.2.7. Third-party contributions ........................................................................................... 28
3.3. Estimated impact on revenue ..................................................................................... 29
4. DIGITAL DIMENSIONS .......................................................................................... 29
4.1. Requirements of digital relevance .............................................................................. 30
4.2. Data ............................................................................................................................ 30
4.3. Digital solutions ......................................................................................................... 31
4.4. Interoperability assessment ........................................................................................ 31
4.5. Measures to support digital implementation .............................................................. 32
EN 3 EN
1. FRAMEWORK OF THE PROPOSAL/INITIATIVE
1.1. Title of the proposal/initiative
Proposal for a Regulation of the European Parliament and of the Council establishing
the Connecting Europe Facility and repealing Regulation (EU) No 2021/1153 for the
period 2028-2034
1.2. Policy area(s) concerned
European Strategic Investments
1.3. Objective(s)
1.3.1. General objective(s)
The general objectives of the Programme are to build, develop, secure, modernise
and complete the trans-European networks in the transport and energy sectors,
facilitate military mobility on the trans-European transport networks, facilitate cross-
border cooperation in the field of renewable energy, and facilitate the synergies
among the transport and energy sectors.
1.3.2. Specific objective(s)
Specific objective
Specific objectives of the transport sector in CEF are:
1) to contribute to the development of projects of common interest relating to the
interconnected, interoperable, smart, sustainable, resilient and multimodal transport
networks in accordance with the Regulation (EU) No 2024/1679, in particular
through:
- actions relating to the projects of common interest with cross-border dimension
implementing the trans-European transport network, including actions on the
sections indicatively listed in the Annex;
- actions relating to the projects of common interests with Union dimension relating
to the completion of a smart, resilient and sustainable trans-European transport
network;
- actions relating to the projects of common interest with cross-border dimension
with third countries implementing the trans-European transport network in
accordance with Article 9 of Regulation (EU) 2024/1679;
2) to adapt parts of the trans-European transport network for the dual use of the
transport infrastructure with a view to improving both civilian and military mobility.
Specific objectives in the energy sector are:
1) to contribute to the development of projects of common interest and projects of
mutual interest as set out in Article 18 of Regulation (EU) 2022/869, with a view to
promoting the completion of the Energy Union, the integration of an efficient and
competitive internal energy market, and the interoperability of networks across
borders and sectors, to facilitating decarbonisation of the economy, to promoting
energy efficiency and to ensuring security of supply;
2) to facilitate cross-border cooperation in the field of renewable energy, through the
support of cross-border projects in the field of renewable energy or through
EN 4 EN
competitive bidding for new renewable energy projects under the Union renewable
energy financing mechanism established by Article 33 of Regulation (EU)
2018/1999, with a view to achieving the Union’s objectives in terms of
decarbonisation, competitiveness, completion of the internal energy market and
security of supply in a cost-efficient manner.
1.3.3. Expected result(s) and impact
Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.
For transport, CEF aims at contributing to the completion of the trans-European
transport network (TEN-T), with the focus on completing the core and extended core
network by 2030 and 2040. In this context, CEF will in particular concentrate on
infrastructure projects with a strong cross-border dimension. CEF will also help to
roll-out interoperable and smart mobility solutions on the TEN-T network (for
example by deploying European traffic management systems) and facilitate the EU
transition towards sustainable mobility (for example by establishing onshore power
supply for vessels in TEN-T ports). CEF can also increase connectivity to 3rd
countries by developing the cross-border sections of the TEN-T corridors to
candidate countries. In addition, CEF adapt parts of the TEN-T for the dual use of the
transport infrastructure with a view to improving both civilian and military mobility.
CEF Energy is an integral part of the Trans-European Networks for Energy (TEN-E)
policy framework, which is focused on linking the energy systems of EU Member
States. It provides financial support to projects of highest added value for the Union
that have a significant cross-border impact. CEF Energy also supports cross-border
cooperation in the field of renewable energy through funding awarded to relevant
projects.
CEF Energy supports the implementation of key cross-border projects that contribute
to: better interconnection of Member States’ electricity, hydrogen and CO2
networks, the digitalisation of energy grids, the development of offshore grids, and
the integration of storage and electrolyser capacities into the grids. These in turn will
enable the integration of an increasing share of renewable energy sources and system
integration across energy vectors, thereby leading to the decarbonisation of the
energy system, secure and affordable energy supply for consumers, better market
integration, and competitiveness of industry.
By providing support to cross-border projects directly at EU level, CEF helps
overcome coordination problems that arise from the multi-jurisdictional nature of the
projects. With its efficient modus operandi, CEF addresses market failures and helps
leverage further investment and funding from other sources, such as national
budgets, national energy tariff systems and notably the private sector, using the full
range of tools available under the Financial Regulation. CEF is a proven instrument
for project promoters of cross-border infrastructure since it provides one contact
point, one grant agreement and one set of rules to follow also for the monitoring and
auditing scheme.
1.3.4. Indicators of performance
Specify the indicators for monitoring progress and achievements.
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
EN 5 EN
the budget. The Regulation contains a set of intervention fields with indicators that
will be used for the relevant investments in transport and energy infrastructure done
under CEF.
1.4. The proposal/initiative relates to:
a new action
a new action following a pilot project / preparatory action30
the extension of an existing action
a merger or redirection of one or more actions towards another/a new action
1.5. Grounds for the proposal/initiative
1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative
Building on the positive experience with the implementation of CEF Transport and
Energy since 2014, the Commission presents a proposal for the successor of CEF in
the context of the preparation of the Multiannual Financial Framework (MFF) post-
2027. The programme concentrates on projects with a strong cross-border dimension
and high EU added value which require particular EU steer to be implemented in a
coordinated manner between Member States across borders.
In the transport sector, CEF contributes to the completion of core network of the
trans-European transport network (TEN-T) by 2030 and the extended core network
by 2040 through building and upgrading infrastructure that is required for seamless
cross-border transport operations. This will lead to a high-performing network for
passengers and goods transportation. CEF also supports the adaptation of relevant
parts of the TEN-T network to military mobility requirements.
In the energy sector, CEF contributes to the development of projects of common
interest and projects of mutual interest as set out in Article 18 of Regulation (EU)
2022/869, with a view to promoting the completion of the Energy Union, the
integration of an efficient and competitive internal energy market and the
interoperability of networks across borders and sectors, to facilitating
decarbonisation of the economy, to promoting energy efficiency and to ensuring
security of supply. Furthermore, CEF facilitates cross-border cooperation in the field
of renewable energy, through cross-border renewable energy projects or competitive
bidding for new renewable energy projects under the Union renewable energy
financing mechanism.
The programme should be operational with the start of the next MFF beginning of
2028. Details for the implementation of the programme such as timetables of the
calls for proposals, their topic and indicative budget or detailed rules on eligibility
and award criteria will be laid down in the work programmes. CEF Transport in
particular allocates its last funds in 2025 already and project promoters of major
infrastructure projects will face a funding gap for the remaining years of the current
MFF. The timely launching of the next CEF and the early allocation of EU funds to
beneficiaries is therefore of essence.
30 As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.
EN 6 EN
Regarding the management mode for the implementation of the programme, it is
proposed to continue with the efficient and targeted delivery under direct
management by the Commission. The possible renewed delegation to an executive
agency, such as the European Climate, Infrastructure and Environment Executive
Agency (CINEA) under the current MFF, will be subject to the outcome of the cost-
benefit analysis and related decisions to be taken.
1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section 'added value of EU involvement' is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone.
Article 171 of the TFEU empowers the Union to define projects of common interest
in TENs infrastructure while leaving the Member States to choose the methods of
implementation. The same Article empowers the Union to support such projects of
common interest as well as projects of mutual interest with third countries.
The scale and the type of the problems targeted by CEF specifically require Union
action since they are by nature Union-wide and can be more efficiently resolved at
Union level, leading to overall greater benefits, more accelerated implementation and
reduction of costs if the Commission coordinates Member States’ actions. Union
funding is also the appropriate means to address the financing challenges that cross-
border projects typically face: the unequal distribution of project benefits and project
costs between the different Member States concerned makes it more difficult to
finance these projects from national funding sources.
TEN-T and TEN-E infrastructure: Given their cross-border nature, TEN-T and TEN-
E projects create significant positive externalities at EU level and foster solidarity
between Member States, but also entail specific challenges for project promoters, due
to their multi-jurisdictional nature, coordination problems and an often asymmetrical
distribution of costs and benefits. They therefore require EU level support. Also for
seamless military mobility across the Union an instrument that coordinates funding
across Member States is needed.
Renewable energy: 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 manner.
However, only a few Member States explain how they intend to establish a
framework for the cooperation on joint projects with one or more Member States in
their final national energy and climate plans submitted in accordance with Regulation
(EU) 2018/1999. There is a risk that cross-border cooperation will remain at a sub-
optimal level in the absence of Union financial assistance.
Expected generated EU added value (ex-post)
CEF provides EU added value through the development of connectivity in transport
and energy and of cross-border cooperation on renewable energy, by focusing on
public goods with a European dimension and on projects that would not be realised
without EU support. More specifically, the EU added value of CEF resides in its
capacity to:
– Steer public and private finance towards EU policy objectives;
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– Enable key investments where the costs are borne at national/local level
whereas the benefits are tangible on a European scale;
– Accelerate the shift to a low-carbon, digital and resilient infrastructure.
EU support from the new CEF programme focuses on actions that carry the highest
EU added value. More specifically:
In the field of transport, it covers cross-border sections and bottlenecks mainly on the
TEN-T core and extended core network and projects on the EU Priority Military
Mobility Corridors.
In the field of energy, CEF aims to improve energy market integration and
interoperability of energy networks across borders, decarbonisation, energy
efficiency, resilience and security of supply, and to facilitate cross-border
cooperation in the field of energy including renewable energy. These cross-border
projects that will be eligible for CEF Energy funding constitute the missing links in
the development of a fully interconnected and decarbonised energy system, as they
are not sufficiently promoted or prioritised by Member States and operators at
national level. CEF contributes to the realisation of these cross-border projects by
supporting sector-specific activities in the form of studies and works.
1.5.3. Lessons learned from similar experiences in the past
The ex-post evaluation of CEF 2014-2020 and the interim evaluation of CEF 2021-
2027 are being conducted in parallel and work is well advanced.
Preliminary findings of both CEF evaluations confirm that the programme performed
well to date. The design of the instrument is appropriate to address a historic lack of
funding into cross-border infrastructure with high EU added value by ringfencing
funding for these projects into a dedicated instrument. There is good coherence with
other EU funding instruments and policies, in particular on decarbonisation. Its
governance model using competitive calls for proposals and direct management of
funds at a centralised agency is well-suited to address the programme’s needs and
provide a level playing field for applicants. CEF funding is consistently deemed
indispensable, enabling crucial transport and energy projects that would otherwise
face significant delays, reduced scope, or not be realised at all due to insufficient
national or private funding. Beyond direct financial support, CEF provides
significant leverage, attracting additional public and private capital and acting as a
strategic anchor for investment.
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments
The initiative is part of the 2028-2034 multiannual financial framework proposal.
CEF should focus on supporting cross-border projects on the TEN-T and TEN-E
networks, as well as projects for seamless military mobility across the Union and
projects in the field of renewable energy cooperation.
Member States investments in the TEN-T network under their National and Regional
Partnership Plans should complement CEF investments, in particular on national
sections which connect to the cross-border links indicated in the CEF annex and to
finance national energy grid infrastructure and generation.
EN 8 EN
In the area of energy, the National and Regional Partnership Plans can reinforce the
energy infrastructure investments provided by CEF, for instance through investment
in energy assets that do not have a cross-border nature but are equally important for
the energy transition.
The extension of the TEN-T corridors to candidate countries and transport and
energy infrastructure in third countries should be supported in close coordination
with Global Europe.
Horizon Europe will continue to support Research and Innovation in transport and
energy and will be tightly connected to the European Competitiveness Fund covering
the scale-up and deployment of cutting-edge innovative solutions for the
decarbonisation, digitalisation and resilience of transport and energy. The European
Competitiveness Fund will also be complementary to CEF by offering the
possibilities of guarantees for infrastructure projects.
1.5.5. Assessment of the different available financing options, including scope for
redeployment
While the closer link between EU funding and policy priorities of the plans would
enhance their cross-border dimension, with the steering mechanism ensuring a
stronger focus on cross-border projects with a high EU added-value, the
implementation of cross-border infrastructure projects through the plans would be
more complex and costly for both Member States’ authorities and project promoters.
For the Member States to align their investment agendas with those of neighbouring
countries would be a lengthy process, both during the initial plan negotiations and in
case of amendments. Germany for instance would have to coordinate its national
plan with eight neighbouring Member States; Hungary with five. In cases where the
process is delayed in one or more Member States, this may cause knock-on delays.
While the Commission could support these coordination efforts – both during the
negotiations and through the provision of technical assistance via the plans –, the
burden for Member States’ authorities would remain significant. This could also
significantly increase the administrative burden for project promoters, who would
need to implement their cross-border projects under several national plans and report
within separate reporting and audit schemes (one per Member State).
This being said, the IA underscored that the National and Regional Partnership Plans
could cater for complementary investments to cross-border sections and to projects
of high EU relevance.A dedicated instrument in direct management will ensure that
cross-border projects are financed based on a competitive approach with the selection
of projects of highest quality, maturity and EU added value. Beneficiaries have a
single contact point and a single procedure for the application and for the
implementation of a project. Additionally, the projects are closely monitored by the
Commission.
EN 9 EN
1.6. Duration of the proposal/initiative and of its financial impact
limited duration
– in effect from 01/01/2028 to 31/12/2034
– financial impact from 2028 to 2034 for commitment appropriations and from
2028 to 2040 for payment appropriations.
unlimited duration
– Implementation with a start-up period from YYYY to YYYY,
– followed by full-scale operation.
1.7. Method(s) of budget implementation planned
Direct management by the Commission
– by its departments, including by its staff in the Union delegations;
– by the executive agencies
Shared management with the Member States
Indirect management by entrusting budget implementation tasks to:
– third countries or the bodies they have designated
– international organisations and their agencies (to be specified)
– the European Investment Bank and the European Investment Fund
– bodies referred to in Articles 70 and 71 of the Financial Regulation
– public law bodies
– bodies governed by private law with a public service mission to the extent that
they are provided with adequate financial guarantees
– bodies governed by the private law of a Member State that are entrusted with
the implementation of a public-private partnership and that are provided with
adequate financial guarantees
– bodies or persons entrusted with the implementation of specific actions in the
common foreign and security policy pursuant to Title V of the Treaty on
European Union, and identified in the relevant basic act
– bodies established in a Member State, governed by the private law of a
Member State or Union law and eligible to be entrusted, in accordance with
sector-specific rules, with the implementation of Union funds or budgetary
guarantees, to the extent that such bodies are controlled by public law bodies or
by bodies governed by private law with a public service mission, and are provided
with adequate financial guarantees in the form of joint and several liability by the
controlling bodies or equivalent financial guarantees and which may be, for each
action, limited to the maximum amount of the Union support.
Comments:
The Programme shall be implemented in direct and indirect management in accordance with
the Financial Regulation. Mirroring the 2014-2020 period and the 2021-2027 period, most of
the budget could be implemented through delegation to an executive agency. In which case,
only programme support actions would be managed directly by the Commission.
EN 10 EN
EN 11 EN
2. MANAGEMENT MEASURES
2.1. Monitoring and reporting rules
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 monitoring, evaluation and reporting arrangements for all
programmes.
2.2. Management and control system(s)
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed
The programme will be implemented through direct management. It is expected to be
delegated to an executive agency, while some programme support measures will be
managed directly by the Commission. The established executive agency CINEA has
the necessary structure and processes to ensure the continued management of CEF.
The programme will be principally implemented through grants, which are the
appropriate funding instrument for large-scale infrastructure and energy generation
projects.
The control strategy will be set up accordingly and will focus on three key stages of
grant implementation, in accordance with the Financial Regulation, namely the
organisation of calls and the selection of proposals that fit the policy objectives of the
programme, operational, monitoring and ex ante controls that cover project
implementation, public procurement, pre-financing, interim and final payments, as
well as ex-post controls and payments.
This control strategy is expected to deliver performance results in line with the
metrics observed for the last iteration of the programme:
~100% of execution of commitment and payment and payment appropriation;
~100% of beneficiaries informed on time;
~100% of the grants signed on time;
~100% of payments made on time;
~ Risk at payment and closure on an annual basis under the 2% materiality threshold.
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them
The risks identified remain broadly identical to those identified for the previous
versions of the programme:
Slower than intended development of the key priorities (Corridors, Projects of
Common interest), due to an insufficient market uptake or to the quality of projects
presented;
Delays in the implementation of the project;
Unavailability of performance data or problems of data quality;
Possible errors or mismanagement of EU funds, including potential double funding
risk and complexity of the rules
EN 12 EN
External risks affecting in a material way infrastructure and/or priorities, such as
geopolitical risks or major climatic events.
External risks affecting the availability of funding or market conditions, in particular
should there be a reduction in the demand for infrastructure or in credit supply as was
the case in the last financial crisis.
The key control functions developed for the previous iteration of the programme are
expected to remain valid, ensuring attention is given to the competitiveness of the
project pipeline, focus on the policy objectives, ensuring the involvement of all
actors, appropriate budgetary flexibility and consistent ex-ante and ex-post controls.
The risks are to be addressed, by ensuring attention is given to the competitiveness
and preparation of the project pipeline, by focussing on the contributions of the
projects to the policy objectives, by ensuring a systematic involvement of all actors,
by maintaining appropriate budgetary flexibility. The set of ex-ante and ex-post
controls will be adapted to the perceived risks level.
The controls will to this avail be supported by a yearly bottom up risk assessment, by
a systematic assessment of the control framework, by an appropriate reporting of
deviations (exception and non-compliance register) and by corrective actions
undertaken with regard to recommendations issued by the Internal Audit Service, by
the European Court of Auditors, or by the Discharge Authority.
2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure)
Cost and benefits of controls
Assuming largest part of the programme is expected to be implemented by the
CINEA executive agency, ensuring a cost of control comparable to that of the current
CEF. The limited number of grants implemented directly by Commission services
could be subject to higher costs of control, due to the low individual values of these
grants and to the absence of economies of scale.
For the projects managed by the executive agency, the cost of control for the current
CEF was divided between the cost of oversight at Commission level and the cost of
operational controls at implementing body level.
The cost of the controls at Commission level, in both DGs involved, is estimated31 to
be around 0,1% of the operational payment appropriations at programme level.
These controls aim at ensuring a smooth and effective oversight of the Agency by its
parent DGs and at ensuring the necessary degree of assurance at Commission level.
At constant perimeter, an increase of the cost of supervision at Commission level
should be expected to reflect the extended requirements as regard the oversight of
executive agencies well as the additional effort that will be linked to the provision of
assurance on the changes to the programme.
CINEA presents a stable control environment. The cost of control at agency level is
expected to remain in or close to the range observed over 2021-2024 (0.9% to 1.3%).
31 This estimate does not include the strategic and policy aspects attached to the programme, or the
supervision of CEF delegated instruments.
EN 13 EN
However the capacity building necessary to adapt to changes to the programme or to
adjust control processes may translate into an increased cost of controls. The benefits
of the controls are the following:
- Avoiding the selection of weaker or inadequate proposals;
- Optimising the planning and the use of EU funds, so as to preserve EU added
value;
- Ensuring the quality of the grant agreements, avoiding errors in the identification
of legal entities, ensuring the correct calculation of the EU contributions and taking
the necessary guarantees for a correct operation of the grants;
- Detection of ineligible costs at payment stage;
- Detection of errors affecting the legality and regularity of operations at audit
stage;
- Increase reliability of information provided to the Commission.
The opportunity to introduce simplified cost options will be considered, subject to a
positive cost benefit assessment as to their effect on the error rate, on the costs of
controls and on the effectiveness and efficiency of controls.
Estimated level of error
The estimated risk at payment and at closure are both estimated to remain under 2%
on an annual basis, in the same range as the error rates observed for CEF2.
2.3. Measures to prevent fraud and irregularities
The Commission's Directorates-General responsible for the actions financed under this
Regulation are committed to protect the financial interests of the Union in line with
the Commission Anti-fraud strategy COM(2019) 196 final and its revised action plan
COM(2023) 405 final.
The anti-fraud measues cover notably the application of preventive measures against
fraud, corruption and any other illegal activities; effective checks; the recovery of
amounts unduly paid and, if irregularities are detected, effective, proportional and
dissuasive penalties, in accordance with Council Regulation (EC, Euratom) No
2988/95, Council Regulation (Euratom, EC) No 2185/96 and with Regulation (EC) No
1073/1999 of the European Parliament and of the Council.
DG MOVE and ENER, as well as the implementing agency CINEA, have updated
their anti-fraud strategies and related action plans at DG level that cover the entire
expenditure cycle, taking into account the proportionality and the cost-benefit of the
measures to be implemented, allowing for a risk assessment of the programme.
The three services will ensure that their fraud risk management approach is used to
identifying high-risk areas, taking into account a sector-specific cost-benefit analysis
by DG and the fraud prevention and risk analysis work of OLAF.
The administrative monitoring of the contracts, grants and related payments fall under
the remit of CINEA. The Anti-fraud strategy is updated every two years, the last time
in 2024. The Agency develops its own anti-fraud measures, including an ex-post audit
strategy to assess the legality and regularity of the underlying transactions and to
recover the amounts unduly paid. CINEA is yearly subject to the European Court of
Auditors audit on the true and fair view of accounts and legality and regularity of the
EN 14 EN
underlying transactions (income and expenditure) and the Agency is yearly subject to
the discharge procedures of the European Parliament and the Council of the EU.
Contracts for grants and procurement concluded by the implementing DGs or CINEA
will be based on standard models, which will set out the generally applicable anti-
fraud measures, including the power of audit, on-the-spot checks and inspections
mentioned above. The Commission, its representatives and the Court of Auditors will
have the power of audit, on the basis of documents and on-the-spot, over all grant
beneficiaries, contractors and subcontractors who have received Union funds.
The European Anti-fraud Office (OLAF) shall be authorised to carry out on-the-spot
checks and inspections on economic operators concerned directly or indirectly by such
funding in accordance with the procedures laid down in Regulation (Euratom, EC) No
2185/96 with a view to establishing whether there has been fraud, corruption or any
other illegal activity affecting the financial interests of the European Union in
connection with a grant agreement or decision or a contract concerning Union funding.
The European Public Prosecutor Office (EPPO) will have the necessary accesses to
exert its competences in accordance with Council Regulation (EU) 2017/1939.
EN 15 EN
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE
3.1. Heading(s) of the multiannual financial framework and expenditure budget
line(s) affected Existing budget lines
In order of multiannual financial framework headings and budget lines.
Heading of
multiannual
financial
framework
Budget line Type of
expenditure Contribution
Number Diff./Non-
diff.32
from
EFTA
countries 33
from
candidate
countries
and
potential
candidates 34
From
other
third
countries
other assigned
revenue
• New budget lines requested
In order of multiannual financial framework headings and budget lines.
Heading of
multiannual
financial
framework
Budget line Type of
expenditure Contribution
Number
Diff./Non-
diff.
from
EFTA
countries
from
candidate
countries
and
potential
candidates
from
other
third
countries
other assigned
revenue
2 05 01 01 Support expenditure for CEF
(Transport, Energy, Military Mobility)
/Non-
diff. NO YES YES NO
2 05 02 01 01 - CEF Transport
Diff. NO YES YES NO
2 05 02 01 02 - CEF Military Mobility Diff NO YES YES NO
32 Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 33 EFTA: European Free Trade Association. 34 Candidate countries and, where applicable, potential candidates from the Western Balkans.
EN 16 EN
2 05 02 02 - CEF Energy
Diff. NO YES YES NO
EN 17 EN
3.2. Estimated financial impact of the proposal on appropriations
3.2.1. Summary of estimated impact on operational appropriations
– The proposal/initiative does not require the use of operational appropriations
– The proposal/initiative requires the use of operational appropriations, as explained below
3.2.1.1. Appropriations from voted budget
EUR million (to three decimal places)
Heading of multiannual financial framework Number 2
Year Year Year Year Year Year Year
TOTAL MFF 2028-2034 2028 2029 2030 2031 2032 2033 2034
Operational appropriations
05 02 01 01– CEF Transport Commitments (1a) 4,282 4,455 4,637 4,825 4,517 5,220 5,428 33,864
Payments (2a) pm pm pm pm pm pm pm pm
05 02 01 02 – CEF Military
Mobility
Commitments (1b) 2,842 2,899 2,609 2,483 2,533 2,214 2,071 17,651
Payments (2b) pm pm pm pm pm pm pm pm
05 02 02 – CEF Energy
Commitments (1b) 3,782 3,936 4,096 4,261 4,432 4,610 4,795 29,912
Payments (2b) pm pm pm pm pm pm pm pm
Appropriations of an administrative nature financed from the envelope of specific programmes35
05 01 01
Support
expenditure for
CEF (Transport,
Energy, Military
(3) pm pm pm pm pm pm pm pm
35
EN 18 EN
Mobility)
TOTAL appropriations Commitments =1a+1b+3 10,906 11,290 11,342 11,569 11,982 12,045 12,294 81,428
for DG MOVE/ENER Payments =2a+2b+3
Heading of multiannual financial framework 4 ‘Administrative expenditure’36
DG Year Year Year Year Year Year Year TOTAL
MFF 2028-
2034 2028 2029 2030 2031 2032 2033 2034
Human resources 11,672 11,672 11,672 11,672 11,672 11,672 11,672 81,704
Other administrative expenditure 114,000 114,000 114,000 114,000 114,000 114,000 114,000 798,000
TOTAL DG
MOVE/ENER 125,672 125,672 125,672 125,672 125,672 125,672 879,672 879,704
36 The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.
EN 19 EN
TOTAL appropriations under
HEADING 4 of the multiannual
financial framework
(Total
commitments
= Total
payments)
125,672 125,672 125,672 125,672 125,672 125,672 879,672 879,704
Year Year Year Year Year Year Year TOTAL
MFF 2028-
2034 2028 2029 2030 2031 2032 2033 2034
TOTAL
appropriations under
HEADINGS 1 to 4
Commitments
of the multiannual
financial framework Payments
EUR million (to three decimal places)
3.2.2. Estimated output funded from operational appropriations (not to be completed for decentralised agencies)
The output and result indicators for the purpose of monitoring progress and achievements of this programme will correspond to the common
indicators provided under Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance Regulation].
EN 20 EN
3.2.3. Summary of estimated impact on administrative appropriations
– The proposal/initiative does not require the use of appropriations of an
administrative nature
– The proposal/initiative requires the use of appropriations of an administrative
nature, as explained below
3.2.3.1. Appropriations from voted budget
VOTED APPROPRIATIONS
Year Year Year Year Year Year Year TOTA
L 2028
- 2034 2028 2029 2030 2031 2032 2033 2034
HEADING 4
Human resources 11,672 11,672 11,672 11,672 11,672 11,672 11,672 81,704
Other administrative expenditure 114,000 114,000 114,000 114,000 114,000 114,000 114,000 798,000
Subtotal HEADING 4 125,672 125,672 125,672 125,672 125,672 125,672 125,672 879,704
Outside HEADING 4
Human resources p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Other expenditure of an administrative
nature
p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Subtotal outside HEADING 4 p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
TOTAL p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
=======================================================
===================================================================
The appropriations required for human resources and other expenditure of an administrative nature
will be met by appropriations from the DG that are already assigned to management of the action
and/or have been redeployed within the DG, together, if necessary, with any additional allocation
which may be granted to the managing DG under the annual allocation procedure and in the light of
budgetary constraints.
3.2.4. Estimated requirements of human resources
– The proposal/initiative does not require the use of human resources
– The proposal/initiative requires the use of human resources, as explained
below
3.2.4.1. Financed from voted budget
Estimate to be expressed in full-time equivalent units (FTEs)
VOTED APPROPRIATIONS Year Year Year Year Year Year Year
2028 2029 2030 2031 2032 2033 2034
Establishment plan posts (officials and temporary staff)
20 01 02 01 (Headquarters and
Commission’s Representation
Offices)
61 61 61 61 61 61 61
20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0
EN 21 EN
01 01 01 01 (Indirect research) 0 0 0 0 0 0 0
01 01 01 11 (Direct research) 0 0 0 0 0 0 0
Other budget lines (specify) 0 0 0 0 0 0 0
• External staff (in FTEs)
20 02 01 (AC, END from the
‘global envelope’) 2 2 2 2 2 2 2
20 02 03 (AC, AL, END and JPD
in the EU Delegations) 0 0 0 0 0 0 0
Admin. Support
line
- at
Headquarters 0 0 0 0 0 0 0
- in EU
Delegations 0 0 0 0 0 0 0
01 01 01 02 (AC, END - Indirect
research) 0 0 0 0 0 0 0
01 01 01 12 (AC, END - Direct
research) 0 0 0 0 0 0 0
Other budget lines (specify) -
Heading 7 0 0 0 0 0 0 0
Other budget lines (specify) –
outside Heading 7 40 40 40 40 40 40 40
TOTAL 103 103 103 103 103 103 103
3.2.4.3. Total requirements of human resources
TOTAL VOTED
APPROPRIATIONS
+
EXTERNAL ASSIGNED
REVENUES
Year Year Year Year Year Year Year
2028 2029 2030 2031 2032 2033 2034
Establishment plan posts (officials and temporary staff)
20 01 02 01 (Headquarters and
Commission’s Representation
Offices)
61 61 61 61 61 61 61
20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0
01 01 01 01 (Indirect research) 0 0 0 0 0 0 0
01 01 01 11 (Direct research) 0 0 0 0 0 0 0
Other budget lines (specify) 0 0 0 0 0 0 0
• External staff (in full time equivalent units)
20 02 01 (AC, END from the
‘global envelope’)
2 2 2 2 2 2 2
20 02 03 (AC, AL, END and JPD
in the EU Delegations) 0 0 0 0 0 0 0
Admin. Support
line
- at
Headquarters 0
0 0 0 0 0 0
- in EU
Delegations 0 0 0 0 0 0 0
01 01 01 02 (AC, END - Indirect
research) 0 0 0 0 0 0 0
01 01 01 12 (AC, END - Direct
research) 0 0 0 0 0 0 0
EN 22 EN
Other budget lines (specify) -
Heading 4 0 0 0 0 0 0 0
Support expenditure for the
Secretariat for Performance Review 40 40 40 40 40 40 40
TOTAL 103 103 103 103 103 103 103
Considering the overall strained situation in Heading 4, in terms of both staffing and the level of
appropriations, the human resources required will be met by staff from the DG who are already
assigned to the management of the action and/or have been redeployed within the DG or other
Commission services.
The staff required to implement the proposal (in FTEs):
• • To be covered by
current staff
available in the
Commission
services
• Exceptional additional staff*
• • • To be financed
under Heading 7
or Research
• To be financed
from BA line
• To be financed
from fees
• Establishment plan
posts
• 61 • • N/A •
• External staff (CA,
SNEs, INT)
• 32 • • 10* •
*The 10 new FTEs correspond to the 10 posts to be received in 2028 for the Secretariat for
performance review under budget line 02 01 21 02 as agreed by the co-legislators during the
negotiations of Regulation (EU) 2024/2803 of the European Parliament and of the Council of
23 October 2024 on the implementation of the Single European Sky (recast).
Description of tasks to be carried out by:
Officials and temporary staff • Policy development and strategy
• Support to regional and thematic fora for the identification of projects of common
interest and projects of mutual interest
• Coordination and liaison with all stakeholders (Member States, third countries,
other DGs and other EU institution, thematic and regional fora, etc.).
• Development of the work programme
• Selection processes
• Management of annual calls for proposals and selection of projects for EU
financial support
• Operational and financial project management
• Evaluations
External staff • Support to regional and thematic fora for the identification of projects of common
interest and projects of mutual interest
• Support to selection processes
• Support to management of annual calls for proposals and selection of projects for
EU financial support
EN 23 EN
• Support to financial and project management
• Support to the organisation of the evaluations
3.2.5. Overview of estimated impact on digital technology-related investments
TOTAL
Digital and IT
appropriations
Year Year Year Year Year Year Year TOTAL
MFF 2028
- 2034 2028 2029 2030 2031 2032 2033 2034
HEADING 4
IT expenditure* (corporate)
0,845 0,845 0,845 0,845 0,845 0,845 0,845 5,915
Subtotal
HEADING 4 0,845 0,845 0,845 0,845 0,845 0,845 0,845 5,915
Outside HEADING 4
Policy IT expenditure on operational programmes
14,23 14,59 14,967 15,364 15,78 16,217 16,675 107,823
Subtotal outside
HEADING 4 14,23 14,59 14,967 15,364 15,78 16,217 16,675 107,823
TOTAL 15,075 15,075 15,075 15,075 15,075 15,075 15,075 113,738
*IT expenditure under H4 was calculated by following DG BUDG’s instruction: number of
FTEs multiplied by EUR 8 200 per FTE.
3.2.6. Compatibility with the current multiannual financial framework
The proposal is consistent with the proposal for the MFF 2028 - 2034
The proposal/initiative:
– does not provide for co-financing by third parties
– provides for the co-financing by third parties estimated below:
Appropriations in EUR million (to three decimal places)
Year Year Year Year Year Year Year
Total 2028 2029 2030 2031 2032 2033 2034
Specify the co-
financing body
EN 24 EN
TOTAL
appropriations
co-financed
3.3. Estimated impact on revenue
– The proposal/initiative has no financial impact on revenue.
– The proposal/initiative has the following financial impact:
– on own resources
– on other revenue
– please indicate, if the revenue is assigned to expenditure lines
EUR million (to three decimal places)
Budget revenue line:
Appropriations
available for
the current
financial year
Impact of the proposal/initiative37
Year
2028
Year
2029
Year
2030
Year
2031
Year
2032
Year
2033
Year
2034
Article ………….
For assigned revenue, specify the budget expenditure line(s) affected.
Other remarks (e.g. method/formula used for calculating the impact on revenue or
any other information).
4. DIGITAL DIMENSIONS
4.1. Requirements of digital relevance
The Connecting Europe Facility (CEF) will continue to support IT tools that have proven
to be key for the efficient and transparent project management. Tools, such as the Single
Electronic Data Interchange Area (SEDIA), eGrants, TENtec, Map-IT, EMI-ECS,
QlikSense (or another Business Intelligence and Data Analytics solution that supports
visualizing, exploring and analyzing data), the Transparency Platform (TP Viewer),
CIRCABC, EUSurvey and ARACHNE are instrumental in this regard. In addition, CEF
will continue to support the Commission implementation activities related to a range of IT
systems and information exchange environments mandated by EU laws and initiatives such
as ESSKY, PRIME KPI, EMSWe, eFTI, etc.
The SEDIA, through the Funding & Tenders Portal, provides a single entry point for
funding and procurement processes, centralizing participants’ data and reducing manual
work. eGrants covers the entire grant lifecycle, ensuring consistency and traceability. Map-
IT allows encoding of both qualitative and quantitative project indicators to support
thematic and country-level reporting. CIRCABC facilitates collaborative document
37 As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net
amounts, i.e. gross amounts after deduction of 20% for collection costs.
EN 25 EN
management with version control and multilingual access. EUSurvey is used for structured
data collection, while ARACHNE enhances project monitoring by identifying potential
fraud risks through enriched data and risk indicators.
TENtec, the information system for the Trans-European Transport Network (TEN-T),
provides interactive maps and up-to-date reports to support transparency, informed
decision-making, and public awareness. TENtec collects and stores geographical, financial
and historical information about the transport network infrastructure of the EU and its
neighbouring countries for the purposes of planning, political decision making and
monitoring of the TEN-T programme implementation. TENtec is a system required by
regulation (EU) 2024/1679. Developed with Member States and stakeholders, it provides a
comprehensive overview of TEN-T policy, aids in project monitoring, and supports
transport modelling and future planning. TENtec also includes data on military mobility
and alternative fuels infrastructure, both of which underpin relevant political priorities, and
is prone to accommodate various types of policy data that require geo-localisation.
Linked to TENtec, the European Alternative Fuels Observatory (EAFO) is a key IT tool to
support monitoring the transition to sustainable mobility as for example set out in
Regulation (EU) 2023/1804 on Alternative Fuels Infrastructure. EAFO provides
comprehensive, up-to-date data and statistics on alternative fuels infrastructure, vehicle
uptake and national policy measures across the EU. EAFO serves as the IT tool supporting
the implementation of legal obligations under Regulation (EU) 2023/1804, such as the
Common EU Access Point on alternative fuels data.
EMI-ECS is an IT tool used for the selection and contracting for external experts involved
in the evaluations of proposals. QlikSense is a tool used for statistics and project
monitoring. The Transparency Platform and the TP Viewer are tools used to provide
information and statistics on funded projects to the public.
The European Single Sky (ESSKY) platform supports stakeholders in the implementation
of the Single European Sky (SES) performance and charging scheme. It provides access to
relevant information through libraries and offers document submission functionality.
The Platform of European Rail Infrastructure Managers Key Performance Indicators
(PRIME KPI) system enables the monitoring of key performance indicators related to
railway transport. It provides a reporting platform for infrastructure managers.
The European Union C-ITS Security Credential Management System (EU CCMS) supports
the deployment of C-ITS systems and technologies in Europe. It is based on central
elements to support secure interoperability at European level. Directive 2010/040 on
Intelligent Transport Systems defines the Commission roles in EU CCMS.
The European Maritime Single Window environment was established by Regulation (EU)
2019/1239 and is a legal and technical framework to harmonise the exchange of
administrative formalities between maritime operators and authorities during a port call in
the EU. It consists of a network of Maritime National Single Windows complemented by
common IT components and services managed by the Commission.
The electronic freight transport information (eFTI) exchange environment is a EU-wide
decentralised IT architecture, established by Regulation (EU) 2020/1056. It will support the
exchange of information between operators and competent authorities for checks of
compliance with six EU transport regulations and directives as well as more than 170
national legal acts regulating freight transport in the Member States.
The Galileo Green Lane solution monitors the traffic situation at TEN-T border crossings
for road freight and travel time for rail freight on TEN-T corridors. It provides border
EN 26 EN
officials and transporters visibility on the border situation, allowing them to see which
borders are under higher load. Galileo Green Lane enables borders to meet the ‘Green
Lane’ requirements, enabling the flow of traffic under 15 minutes.
The European mobility data space (EMDS) should enable data discovery and sharing from
existing and future transport and mobility data sources. In the EMDS Communication
(COM/2023/751 final), the Commission outlined that one of the main components is a
(meta)data portal where all relevant data ecosystems could share metadata of the data types
they manage and the respective access conditions.
4.2. Data
The digital tools supported by CEF are of very different nature, concern different transport
modes and different actors that exchange information (Commission services, beneficiaries,
national authorities, business partners, etc.). Hence the tools also process a wide range of
different data. In general, they follow the once-only principle, ensuring maximum data
reuse and avoiding repetitive data entry, while sharing data safely and securely.
4.3. Digital solutions
4.4. Interoperability assessment
4.5. Measures to support digital implementation
All tools described are designed to promote coherence, enhance efficiency, and ensure
interoperability, thereby strengthening the overall quality of processes underpining the
Commission’s services related to the CEF and support the smooth implementation of the
Single market.
All digital tools decribed are already in use by stakeholders. They demonstrate strong
interoperability through standardised information exchange techniques.
For the European mobility data space, the Commission is working on the details of its
deployment.
The digital tools described are functioning effectively, and any future changes or
improvements will be implemented in a controlled and phased manner in order to ensure
continuity and avoid any disruption to operations or to the implementation of the
Regulation.
EN EN
EUROPEAN COMMISSION
Brussels, 16.7.2025
COM(2025) 547 final
ANNEX
ANNEX
to the
Proposal for a Regulation
establishing the Connecting Europe Facility for the period 2028-2034, amending
Regulation (EU) 2024/1679 and repealing Regulation (EU) 2021/1153
EN 1 EN
ANNEX
Indicative list of projects of common interest with cross-border dimension as referred to in
Art 3(2)(a) first intend
Atlantic Corridor
FR – ES Bordeaux - Burgos
ES - PT Madrid - Lisboa
PT - ES Porto - Vigo - A Coruña
Baltic Sea — Black Sea — Aegean Sea Corridor
RO - BG Craiova - Sofia
RO - BG Bucharest - Giurgiu - Ruse - Varna
BG - EL Sofia - Thessaloniki
EL - BG Thessaloniki - Alexandropoulis - Burgas
PL - SK - HU Krakow - Košice - Miskolc
RO - UA Ploesti - Bacau - Chernivtsi
RO - MD Iasi - Chisinau
Baltic Sea — Adriatic Sea Corridor
PL - CZ Katowice / Opole - Ostrava – Brno
AT - SI Graz - Maribor
AT - SK - HU Wien - Bratislava - Budapest
PL – SK Katowice - Žilina
Mediterranean Corridor
FR - IT Lyon - Turin
FR – ES Montpellier - Perpignan - Barcelona
FR - IT Nice – Genova
IT - SI Trieste - Divača / Ljubljana
HU - UA Nyiregyhaza - Chop
North Sea — Rhine — Mediterranean Corridor
FR - BE Seine – Escaut (inland waterway)
NL - DE Arnhem - Emmerich - Oberhausen
BE - NL Gent - Terneuzen
BE – LU Namur - Luxembourg
IT - CH Chiasso - Milano
DE - CH Karlsruhe - Basel
IE - UK Dublin – Belfast
North Sea — Baltic Corridor
EE - LV - LT - PL Tallinn - Riga - Vilnius - Warsaw (Rail Baltica)
DE - PL Berlin - Szczecin
DE - PL Berlin - Frankfurt-an-der-Oder - Poznan
PL - UA Krakow - Lviv
PL - UA Lublin - Kovel
Rhine — Danube Corridor
DE - CZ Nürnberg / Regensburg - Pilsen - Praha
DE - CZ Dresden - Praha
CZ - AT - SK Brno - Wien / Bratislava
DE - AT - SK - HU
- HR - RO - BG Rhine / Danube (inland waterway)
EN 2 EN
SK - CZ Olomouc (Zlin) - Žilina
HU - RO Budapest - Cluj/Timisoara
SK - UA Košice - Chop
Scandinavian — Mediterranean Corridor
IT - AT - DE Munich - Verona (covering the Brenner Base tunnel)
DE - DK Copenhagen - Lübeck (covering the Fehmarnbelt tunnel)
SE - FI Umeå - Luleå - Oulu (Bothnian corridor)
SE - NO Stockholm - Oslo
Western Balkans — Eastern Mediterranean Corridor
AT - SI Villach - Ljubljana
HR - SI Zagreb - Ljubljana
EL - MK Thessaloniki - Guevgueliya - Skopje
BG - RS Sofia - Niš
HR - RS Zagreb - Beograd
Waterborne European Maritime Space and TEN-T ports
Comprehensive network
FR - ES Pau - Canfranc
FR - BE Mons - Valenciennes
NL - DE Groningen - Oldenburg
PL - CZ Wrocław - Praha
AT - DE München - Linz
BE - DE - NL Antwerpen - Venlo - Mönchengladbach
Eelnõude infosüsteemis (EIS) on antud täitmiseks ülesanne. Eelnõu toimik: 19.1.1/25-0515 - COM(2025) 547 Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Connecting Europe Facility for the period 2028-2034, amending Regulation (EU) 2024/1679 and repealing Regulation (EU) 2021/1153 Arvamuse andmine eelnõu kohta Kliimaministeeriumile vastavalt Riigikantselei13.08.2025 resolutsioonile. Osapooled: Kaitseministeerium; Siseministeerium; Rahandusministeerium Tähtaeg: 22.08.2025 23:59 Link eelnõu toimiku vaatele: https://eelnoud.valitsus.ee/main/mount/docList/706d9f7c-ec95-43ee-b944-075075193bf2 Link menetlusetapile: https://eelnoud.valitsus.ee/main/mount/docList/706d9f7c-ec95-43ee-b944-075075193bf2?activity=2 Eelnõude infosüsteem (EIS) https://eelnoud.valitsus.ee/main