The future of European Territorial Cooperation (ETC) post 2027
COTER-VII/038
The future of European Territorial Cooperation (ETC) post 2027
Cohesion Policy is one of the CoR’s key priorities, as is its European territorial cooperation (ETC/Interreg) objective, including four strands for cooperation: cross-border, transnational, outermost, and interregional. Similarly, to the Cohesion Policy, the ETC is continuously under pressure, and underfunded, something the CoR strives to change. This forward looking opinion aims at influencing the EC legislative proposal for ETC post 2027 period for better targeting the regional needs with more flexibility, synergy, complementarity, and local empowerment for rapid actions.
Council
Paragraph 22 of the Council conclusions of 28 March 2025 highlights the EU added value of ETC and ask for its continuation and possible reinforcement: "UNDERLINES that all strands of European Territorial Cooperation foster stronger regional ties and integration among Member States, as well as cultivate positive relations between the EU and its partner countries. CALLS on the Commission to explore possible paths to strengthen interregional, transnational and cross-border cooperation, leading to increased resilience and improved functioning of the Single Market and harmonious development across the borders. EMPHASISES the need to improve synergies between mainstream programmes and Interreg programmes;"
This Council meeting was the first time that the CoR president was given the floor during the official discussions among ministers within a Council meeting.
European Commission (31 October 2025)
The Commission welcomes the Committee overall support to Interreg and takes note of the Committee’s appreciation of the major features of the instrument.
(Paragraph 2) The Commission agrees with the CoR that European Territorial Cooperation has a strong European added value by playing a key role in addressing structural challenges across borders and promoting a more balanced territorial development through the reduction of socio-economic disparities.
(Paragraphs 2-3) The Commission considers that it is premature to determine the future budget for cohesion policy. In line with the political guidelines for 2024-2029, the next Multiannual Financial Framework should draw lessons from the current budget and be an opportunity to define a strengthened and modernised cohesion and growth policy to be aligned with the EU’s wider priorities. In this context, cohesion policy will remain a pivotal policy of the EU in the future with regions at the centre.
(Paragraph 4) With regard to the post-2027 period, in line with President von der Leyen’s Political Guidelines, regions will continue to be at the centre of a strengthened cohesion and growth policy. The Commission notes and understands the CoR’s emphasis on the importance of preserving the core elements of Interreg (cooperation governance on national, regional and local level, joint programming and implementation, wide partnership on equal footing) so that it continues effectively supporting cooperation across borders.
(Paragraph 5) The Commission takes note of the CoR’ comments on the lack of assessment of Interreg programmes in the 9th Cohesion Report. However, this report highlights the key role of cooperation in addressing common challenges and ensuring a more balanced territorial development. In addition, it points out the specific handicaps that EU border regions face: access to services, persistence of legal and administrative obstacles, missing transport links, geopolitical instability, etc. It also underlines that Interreg has been pioneering the closer involvement of citizens in cohesion policy to build trust across borders and a common identity.
(Paragraph 9) The Commission welcomes the CoR’s view on European Territorial Cooperation with a view to promoting cohesion, enlargement and good relations with the EU’s neighbours, as well as an important tool to reinforce the single market. The Commission confirms that European Territorial Cooperation has proved to be effective in contributing to reducing disparities between regions, stabilising the EU external borders and laying the groundwork for future EU enlargement. Moreover, it has been building capacity and trust among authorities across all governance levels, hence contributing to better policy making and reinforcing impacts of EU spending. The Commission agrees that Interreg has the potential to further boost growth, improve the quality of life of people living in border regions, and remove border-related obstacles.
(Paragraph 11) The Commission shares the CoR’s view that the partnership principle and the place-based approach are essential elements of European Territorial Cooperation. A more effective and proactive involvement and dialogue with all actors - national, regional, local authorities and stakeholders - is central in building the consensus needed to drive the changes, and to implement effectively place-based development strategies.
(Paragraph 12) The Commission made many simplification proposals for the 2021-2027 cohesion policy regulations, most of which were retained by the co-legislators in the final versions of the regulations. The Commission notes that Member States do not always use all the simplification options offered by the EU regulatory framework for the implementation of Interreg programmes and may be responsible for additional complexities in their administrative practices and procedures to the detriment of beneficiaries. This gold-plating is all the more detrimental to the implementation of multi-country projects that require additional coordination efforts. The Commission continues to work with Member States and Interreg programmes to reduce administrative burdens.
(Paragraph 16) The Commission welcomes the CoR’s support for the ‘embedding’ of cooperation activities within regional cohesion programmes, and the Commission will continue its efforts to expand these possibilities in the current period.
(Paragraph 21) The Commission takes notes of the CoR’s strong support for the Small Project Fund approach in Interreg cross-border programmes. Further reflection would be necessary on introducing this approach as an obligatory element as many cross-border programmes successfully support people-to-people projects without using a Small Project Fund.
(Paragraph 23) The Commission welcomes the CoR’s support for the amended proposal for a Regulation on ‘Facilitating Cross-Border Solutions’, which establishes a flexible cooperation framework which will contribute to a better identification of cross-border obstacles and their potential resolution by the Member States, taking into account the various tools at their disposal. The Commission agrees with the Committee that European groupings of territorial cooperation and Interreg programmes could support the work of cross-border coordination points.
(Paragraphs 29 et seq) The Commission welcomes the CoR’s support for interregional cooperation and the 4 programmes which deliver it. The Commission recognises the added value that enabling cooperation among local and regional authorities and cities across the whole European Union and beyond, in particular in enlargement countries, provides.
(Paragraph 40 et seq) The Commission shares the CoR’s view about the importance of cooperation programmes for the outermost regions and notes the progress being made with integrating external EU funding into the outermost region cooperation programmes in the current period.
(Paragraph 53) The Commission stresses that the current Interreg programmes have extensive experience in the use of Simplified Cost Options and is of the opinion that lessons could be drawn from these simplification measures as well as from the Recovery and Resilience Facility experience.
Paragraph 22 of the Council conclusions of 28 March 2025 highlights the EU added value of ETC and ask for its continuation and possible reinforcement: "UNDERLINES that all strands of European Territorial Cooperation foster stronger regional ties and integration among Member States, as well as cultivate positive relations between the EU and its partner countries. CALLS on the Commission to explore possible paths to strengthen interregional, transnational and cross-border cooperation, leading to increased resilience and improved functioning of the Single Market and harmonious development across the borders. EMPHASISES the need to improve synergies between mainstream programmes and Interreg programmes;"
This Council meeting was the first time that the CoR president was given the floor during the official discussions among ministers within a Council meeting.
European Commission (31 October 2025)
The Commission welcomes the Committee overall support to Interreg and takes note of the Committee’s appreciation of the major features of the instrument.
(Paragraph 2) The Commission agrees with the CoR that European Territorial Cooperation has a strong European added value by playing a key role in addressing structural challenges across borders and promoting a more balanced territorial development through the reduction of socio-economic disparities.
(Paragraphs 2-3) The Commission considers that it is premature to determine the future budget for cohesion policy. In line with the political guidelines for 2024-2029, the next Multiannual Financial Framework should draw lessons from the current budget and be an opportunity to define a strengthened and modernised cohesion and growth policy to be aligned with the EU’s wider priorities. In this context, cohesion policy will remain a pivotal policy of the EU in the future with regions at the centre.
(Paragraph 4) With regard to the post-2027 period, in line with President von der Leyen’s Political Guidelines, regions will continue to be at the centre of a strengthened cohesion and growth policy. The Commission notes and understands the CoR’s emphasis on the importance of preserving the core elements of Interreg (cooperation governance on national, regional and local level, joint programming and implementation, wide partnership on equal footing) so that it continues effectively supporting cooperation across borders.
(Paragraph 5) The Commission takes note of the CoR’ comments on the lack of assessment of Interreg programmes in the 9th Cohesion Report. However, this report highlights the key role of cooperation in addressing common challenges and ensuring a more balanced territorial development. In addition, it points out the specific handicaps that EU border regions face: access to services, persistence of legal and administrative obstacles, missing transport links, geopolitical instability, etc. It also underlines that Interreg has been pioneering the closer involvement of citizens in cohesion policy to build trust across borders and a common identity.
(Paragraph 9) The Commission welcomes the CoR’s view on European Territorial Cooperation with a view to promoting cohesion, enlargement and good relations with the EU’s neighbours, as well as an important tool to reinforce the single market. The Commission confirms that European Territorial Cooperation has proved to be effective in contributing to reducing disparities between regions, stabilising the EU external borders and laying the groundwork for future EU enlargement. Moreover, it has been building capacity and trust among authorities across all governance levels, hence contributing to better policy making and reinforcing impacts of EU spending. The Commission agrees that Interreg has the potential to further boost growth, improve the quality of life of people living in border regions, and remove border-related obstacles.
(Paragraph 11) The Commission shares the CoR’s view that the partnership principle and the place-based approach are essential elements of European Territorial Cooperation. A more effective and proactive involvement and dialogue with all actors - national, regional, local authorities and stakeholders - is central in building the consensus needed to drive the changes, and to implement effectively place-based development strategies.
(Paragraph 12) The Commission made many simplification proposals for the 2021-2027 cohesion policy regulations, most of which were retained by the co-legislators in the final versions of the regulations. The Commission notes that Member States do not always use all the simplification options offered by the EU regulatory framework for the implementation of Interreg programmes and may be responsible for additional complexities in their administrative practices and procedures to the detriment of beneficiaries. This gold-plating is all the more detrimental to the implementation of multi-country projects that require additional coordination efforts. The Commission continues to work with Member States and Interreg programmes to reduce administrative burdens.
(Paragraph 16) The Commission welcomes the CoR’s support for the ‘embedding’ of cooperation activities within regional cohesion programmes, and the Commission will continue its efforts to expand these possibilities in the current period.
(Paragraph 21) The Commission takes notes of the CoR’s strong support for the Small Project Fund approach in Interreg cross-border programmes. Further reflection would be necessary on introducing this approach as an obligatory element as many cross-border programmes successfully support people-to-people projects without using a Small Project Fund.
(Paragraph 23) The Commission welcomes the CoR’s support for the amended proposal for a Regulation on ‘Facilitating Cross-Border Solutions’, which establishes a flexible cooperation framework which will contribute to a better identification of cross-border obstacles and their potential resolution by the Member States, taking into account the various tools at their disposal. The Commission agrees with the Committee that European groupings of territorial cooperation and Interreg programmes could support the work of cross-border coordination points.
(Paragraphs 29 et seq) The Commission welcomes the CoR’s support for interregional cooperation and the 4 programmes which deliver it. The Commission recognises the added value that enabling cooperation among local and regional authorities and cities across the whole European Union and beyond, in particular in enlargement countries, provides.
(Paragraph 40 et seq) The Commission shares the CoR’s view about the importance of cooperation programmes for the outermost regions and notes the progress being made with integrating external EU funding into the outermost region cooperation programmes in the current period.
(Paragraph 53) The Commission stresses that the current Interreg programmes have extensive experience in the use of Simplified Cost Options and is of the opinion that lessons could be drawn from these simplification measures as well as from the Recovery and Resilience Facility experience.
THE EUROPEAN COMMITTEE OF THE REGIONS
- considers cohesion policy and European territorial cooperation (ETC) to be the epitome of European added value and thinks that they should be strengthened in the future;
- believes that ETC should be seen as a key EU policy for promoting cohesion, EU enlargement and good relations with the EU’s neighbours. It should be considered one of the EU’s most important measures for strengthening the single market and removing obstacles to the free movement of people, services and goods in the EU;
- points out that border regions account for 40% of EU territory and that 30% of the EU population live in border regions; believes that funding for cross-border cooperation (Interreg A) should be doubled in the next programming period;
- is deeply concerned that the principles of cohesion policy and the Interreg programmes – shared management and action on an equal footing in local and regional partnerships – are being jeopardised by efforts to centralise management of EU funds in the post-2027 period;
- points out that ETC requires by definition cooperation at sub-national level across more than one Member State; coordinating that multi-actor cooperation through separate national plans will be impossible and alienate sub-national stakeholders from the European project;
- calls on the European Commission to continue its efforts to simplify the implementing rules for ETC and calls on the Member States to avoid setting additional, potentially implementation-hindering requirements beyond those set at EU level.
- considers cohesion policy and European territorial cooperation (ETC) to be the epitome of European added value and thinks that they should be strengthened in the future;
- believes that ETC should be seen as a key EU policy for promoting cohesion, EU enlargement and good relations with the EU’s neighbours. It should be considered one of the EU’s most important measures for strengthening the single market and removing obstacles to the free movement of people, services and goods in the EU;
- points out that border regions account for 40% of EU territory and that 30% of the EU population live in border regions; believes that funding for cross-border cooperation (Interreg A) should be doubled in the next programming period;
- is deeply concerned that the principles of cohesion policy and the Interreg programmes – shared management and action on an equal footing in local and regional partnerships – are being jeopardised by efforts to centralise management of EU funds in the post-2027 period;
- points out that ETC requires by definition cooperation at sub-national level across more than one Member State; coordinating that multi-actor cooperation through separate national plans will be impossible and alienate sub-national stakeholders from the European project;
- calls on the European Commission to continue its efforts to simplify the implementing rules for ETC and calls on the Member States to avoid setting additional, potentially implementation-hindering requirements beyond those set at EU level.
