Annexes to JOIN(2025)11 - Implementation of the Action Plan on Military Mobility 2.0 - Main contents
Please note
This page contains a limited version of this dossier in the EU Monitor.
| dossier | JOIN(2025)11 - Implementation of the Action Plan on Military Mobility 2.0. |
|---|---|
| document | JOIN(2025)11 |
| date | March 20, 2025 |
D. Military Requirements
17. To further align standards of the TEN-T and the EU military transport network, on 23 October 2023 the Council adopted the revised military requirements including Annex II “Multi-Modal Transport Corridors”. The revision process included consultations with NATO. The enlarged scope of military requirements encompasses: (i) logistics hubs; (ii) the supply-chain infrastructure for fuel; (iii) lessons identified from Russia’s war of aggression against Ukraine; and (iv) military criteria for the evaluation of dual-use infrastructural project proposals.
18. The Study on priority military mobility corridors referred to in paragraph 13 resulted in the need to further update Annex II of the Military Requirements for Military Mobility for two reasons: to include the priority military mobility corridors identified by the Study, and to ensure the transport infrastructure along these identified corridors had dual-use (TEN-T & military) status, where necessary. The new revision of Annex II was launched in October 2024 and adopted by the Council on 17 March 2025.
19. Meeting in the Oil Coordination Group, the Commission services, the EU Military Staff, and Member States, discussed how on oil infrastructure could support military mobility. Member States exchanged national practices and identified possible bottlenecks in military fuel logistics along the military corridors. The Commission services gave Member States a questionnaire on the topic. Its analysis of the replies will be used as a basis for further discussions on how existing oil infrastructure (e.g. strategic oil stocks) can support military mobility.
20. The specifications for Fuel-Supply Chain Infrastructure for fuel set out in the Military Requirements for Military Mobility, within and beyond the EU, also identify future-proof alternative fuel concepts. In the context of the global energy transition, these alternative-fuel concepts would reduce external dependencies for EU armed forces on fossil fuel suppliers. These concepts were discussed in military mobility staff-to-staff meetings which the Commission services and the EU Military Staff held with NATO. The subject was also discussed in an EU-NATO climate and security workshop on the energy transition. These discussions pointed to the importance of developing secure Europe-based alternative-fuel supply chains and the corresponding technological and industrial base required by these alternative fuels.
E. Access to airspace and airspace navigation services and other modes of transport
21. Commitment No 5 of the Military Mobility Pledge 2024 is to “[e]nsure a prioritised access of the armed forces to relevant transport modes, networks and assets, including required airspace, also through the EU regulatory framework, in support of national efforts, most notably in times of crisis and conflict and where possible already in peacetime, in full respect of the sovereignty of EU Member States over their national territory and national decision-making processes regarding military movements.” The EU institutions have worked to facilitate the implementation of this commitment.
22. Firstly, the European Defence Agency (EDA) and the relevant Commission services have continued their cooperation to ensure access to airspace and air navigation services for civil and military aviation as part of the Single European Sky (SES) and the related project to modernise the management of air traffic (SESAR), in coordination with the SESAR Joint Undertaking and the SESAR Deployment Manager. Any lack of interoperability between military and civil systems threatens the military’s access to airspace and use of navigation services. This could also be a challenge, in cases when the military is providing services to civilian users. Growing issues with jamming and spoofing have also highlighted the need for a resilient Minimum Operational Network of Communication, Navigation and Surveillance (CNS) ground systems as backup systems in the event of disruptive events, to guarantee military mobility by air 24/7. Aviation and air traffic management were included in the Military Mobility initiative (as reflected in the previous update of the Military Requirements10) in recognition of their importance for overcoming interoperability gaps and to ensure resilience of the air traffic management/CNS services. The Implementing Regulation on dual-use requirements11 allowed the military aviation community to take part in CEF military mobility calls for proposals (two airport-related projects were awarded funding in 2024).
23. The European Union Aviation Safety Agency (EASA) has also advanced work to improve the interchangeability of (spare) parts between the civil and military aviation industry. The development of a Certification Memorandum will clarify the conditions and facilitate the future dual-use certification of maintenance of aircraft parts and equipment. However, certification authority on defence matters is a Member States’ prerogative and Member States’ national authorities oversee the respective certification requirements. Civil-military cooperation is focused on the integration of air traffic management. From a certification perspective, the EDA chairs the Military Airworthiness Authorities Forum, which produces the European Military Airworthiness Requirements (EMARs). The Member States National Military Airworthiness Authorities use these EMARs for their regulations. The development of EMARs tailored for Military Airworthiness, based on the Cooperation Arrangement and subsequent continuing work programme between the EDA and EASA, are in line with the most recent EASA regulations. The same principle will be applied to Military Airworthiness and the certification of Unmanned Aircraft Systems where relevant, to minimise the national regulatory differences between Member States and the differences between European programmes.
24. Lastly, in July 2023, DG MOVE tabled a revision of the Rail Capacity Regulation12, which harmonises EU rules for rail infrastructure capacity and traffic management, considering the needs of Ministries of Defence received through the EDA. The proposed revision contains a new provision allowing for the cancellation of railroad track access rights without compensation, in the case of a last-minute crisis request by the armed forces. Similar exceptions are provided for exercises simulating crisis situations. Following the adoption by the European Parliament of its report on 12 March 2024, and the adoption by the Council of its General Approach on 18 June 2024, the first Trilogue meeting was held on 19 November 2024.
III – REGULATORY SUPPORT MEASURES
A. Permissions for cross-border movement
25. The EDA Category A-Programme on “Optimising Cross-Border Movement Permission Procedures in Europe” is progressing well to simplify and harmonise military mobility procedures across Europe. To date, 27 contributing Member States, including Norway, have signed the Programme Arrangement for cross-border movement permissions. The Technical Arrangements (TAs) for Surface and Air have been signed by 26 and 25 contributing Member States respectively (including Norway). Recent updates to the TA Surface forms have further streamlined the process for obtaining annual diplomatic clearances. The ‘TA Sea’ for the maritime domain is in an advanced state of negotiation. It will also trigger an amendment of the Programme Arrangement.
26. To support the implementation of the signed TAs, the EDA has developed an Implementation Monitoring Matrix which allows to monitor the progress of the implementation of the various activities under the TAs. Moreover, the network of national point-of-contacts for military mobility will provide valuable feedback from the Member States for future amendments. The EDA will work together with the Member States to facilitate the full implementation of the TAs and to test the Surface TAs template developed for annual permissions.
27. On the cross-border permission TA utilisation, Member States are coordinating their national efforts on a strategic level through the PESCO project on Military Mobility. This has led to the establishment of a National Point of Contact Network which is expected to be the primary user of the EDAs Cross Border Movement Permission TAs.
28. Based on first consultations with the coordinating Member States of the two PESCO projects, “Military Mobility” and “Network of Logistic Hubs”, in late 2023 the EDA, along with the Commission, developed a concept to create synergies between both projects. This concept uses the TENtec viewer to highlight the gaps in - and needs of - Logistics Hubs along military corridors in Europe. Based on these results, the PESCO project “Network of Logistic Hubs” should provide additional - potentially temporary - Logistic Hubs to support military movement on these corridors. Both PESCO projects are considering the EDA’s suggestion.
29. In January 2024, three13 Member States signed a Letter of Intent for a common Enablement and Sustainment (ESN) corridor, in close cooperation with NATO. The objective is to facilitate the more effective movement of military personnel and equipment from North Sea Ports to NATO’s Eastern Flank. The Deutsch-Netherlands-Office is identifying, including through live exercises, obstacles to the fast movement of troops and military materiel across this ESN corridor, and proposing solutions for addressing these obstacles, including simplification and harmonisation of rules and mutual recognition of cross-border procedures. This ‘military mobility areas’ will serve as a model for similar solutions on other ESN corridors. Another two military mobility areas agreements were signed14 at the NATO summit in Washington in July 2024, while three more have also now been signed15,. All these initiatives, ideas and progress came from the various EU and Member State military mobility stakeholder meetings and events.
B. Digitalisation of logistical processes
30. Work continues on the European Defence Fund (EDF) project for a Secure Digital Military Mobility System (SDMMS) for exchanging information related to military mobility. The project is receiving EUR 9 million in funding from the EDF. The Netherlands joined the Estonian-led project in 2024, which already consisted of companies from nine Member States16 plus Norway. Slovakia is in talks on potentially joining, while Estonia is prepared to bring more countries into the project, which would be very beneficial to the SDMMS.
31. The overall duration of the project was initially for 30 months, from 1 January 2023 to 31 May 2025. Due to a delay in the signing of the Memorandum of Understanding, the system will not be available by mid-2025 as initially planned. The project is expected to be finalised by the end of 2025, and it will facilitate the direct and secure exchange of information between participating governments requesting and approving any military movement.
C. Customs
32. In March 2024 the “Assessment of the Needs, Gains, and Risks for the Development of a Military Customs System” was developed by the EDA and the contributing Member States, with advisory input from the Commission. As a second phase of the related EDA Programme Arrangement on Harmonising Military Requirements related to Customs, the EDA has launched a study aimed at determining the technical specifications and requirements for the digitalisation of military customs processes. The study includes a discussion on using electronic data processing to facilitate efficient information exchange between military forces and customs authorities. The findings of this study, combined with the results of the SDMMS project, will be assessed by the EDA and the contributing Members States. Additionally, the EDA is also working with NATO to assess the possibility of digitising NATO Form 302 and incorporating it into the Military Customs System. The Commission is expecting the first tangible results in relation to such a system. The Commission will then assess the need to prepare legal amendments to EU Customs Legislation which would set out a legal framework for Member States’ use of a digitalised EU Form 302.
D. Enhanced logistics
33. In September 2024, the second study was presented, proposing how to connect the various Member State IT applications for military logistics to a federated logistic communication network, to enable the exchange and sharing of logistics data between participants. A follow-on study, scheduled to commence in 2025, will draw up a comprehensive list of IT applications used by commercial logistics operators and will identify how to embed their IT applications in a wider common secure network. The Logistics IT Systems project does not aim to replace the various IT applications in use. Its strategic objective is to provide an architecture to connect various applications and make it possible to embed future applications within this architecture.
34. On the use of Additive Manufacturing (AM) – commonly known as 3D printing in the context of military logistics – the EDA Category B Project “Additive Manufacturing for Logistic support” established in November 2023 aims to draw up and determine common standards to enable interchangeability of AM manufactured parts. To support these activities, the EDA has conducted various studies on legal issues related to the AM and AM data management, which were presented in the course of 2024. In 2025, the EDA will conduct another study providing a harmonised AM training concept to ensure interoperability in the provision of services and logistics support.
IV – RESILIENCE AND PREPAREDNESS
A. Strategic lift capabilities
35. The EDA has continued work to develop the necessary sea and air transport/air lift capabilities, in line with the 2020 Report on the Coordinated Annual Review on Defence and in association with relevant PESCO projects. The PESCO project on Future Mid-size Tactical Cargo has produced two documents to guide industrial development and a study funded under the 2022 EDF Work Programme. The Strategic Air Transport Outsized Cargo PESCO project has developed the high-level common requirements while the call for a study in this domain under the 2023 EDF Work Programme will be launched in December 2024. The Next Generation Medium Helicopter PESCO project started in June 2023 and is currently analysing Member States’ inputs for their future plans for helicopters, for both upgrading existing fleets and developing new platforms.
36. In 2025 the EDA will launch two studies; (i) a study to assess the current availability of national and commercial rail assets used by the military and identify potential needs for specialised rail transport and infrastructure, while also evaluating national and EU legislation against military needs and; (ii) a study to evaluate key infrastructure on inland waterway transport and the capacity for military movement.
B. Protection against security risks
37. At the Council request17, the Commission services, the Network and Information Systems Cooperation Group and the EEAS are developing cybersecurity risk scenarios. In July 2024, the group published a risk assessment report on the cyber resilience of the EU’s telecommunications and electricity sectors18. Other critical sectors, such as transport, will be assessed in future editions. A resilient and robust data-sharing network with a high level of cybersecurity is necessary to support effective sharing of digital data among relevant civilian and military stakeholders and operators. Such a network could make the most of EU infrastructure such as the EU Secure Connectivity Programme (IRIS²).
38. In January 2024, the Commission tabled a proposal to revise the Foreign Direct Investments (FDI) Regulation19, to better protect EU security and public order by proposing improved screening of foreign investment into the EU. In a changing geopolitical context, it is in the shared interest of all Member States to promote the effective screening of foreign investments in EU firms that provide critical technologies, infrastructure or inputs, or hold sensitive information, and whose activities are critical for security or public order at EU level. From a military mobility perspective, it is important that the proposed revision of the FDI Regulation includes a clear reference to the TEN-T as a “project or programme of EU interest” that requires Member States or the Commission to consider whether associated foreign direct investments are likely to negatively affect the TEN-T on grounds of security or public order. This will allow the Commission and Member States to better identify, assess and mitigate potential risks to security or public order resulting from a proposed foreign direct investment into key EU transport infrastructure.
39. In the context of the Consultation Forum for Sustainable Energy in the Defence and Security Sector (CF SEDSS), work has continued to explore how to increase the use of renewable energy sources in transportation. This work also addresses the aims of the Joint Communication on a New Outlook on the Climate and Security Nexus, adopted in June 202320, which tasked the EEAS, Commission services and the EDA to analyse ways to reduce reliance on fossil fuels in military transportation by promoting the adoption of renewable energy sources and associated technologies. Four examples of this analysis work are set out in the bullet points below:
- Several CF SEDSS Phase III deliverables (research studies, defence energy-related project ideas and the guidance document on advancing sustainable energy) published in 2024 explored a range of topics. These included alternatives to fossil fuels and successful decarbonisation practices for transport, military requirements for hydrogen-based solutions for heavy military logistic vehicles and the impact of climate change and the transition to green energy on the resilience and energy security of defence-related critical energy infrastructure, including military transport infrastructure.
- The CF SEDSS Phase III Study on Decarbonising the Defence Sector – Challenges and Opportunities investigated alternatives to fossil fuels developed for short and medium-range road transportation. It also looked into data collection and monitoring for all energy use, including transport (e.g. for calculating the rate of renewable energy consumption), and funding sources for upgraded mobility and the related challenges.
- The ‘Study on Defining the Key Requirements for an Energy Storage Selection Decision Support Tool for Homeland Defence Installations’ offered solutions on ways to match appropriate energy storage technologies with various applications, including transport (both light use - vehicles under 3 tonnes - and heavy use - vehicles over 3 tonnes).
- Phase III of CF SEDSS finished on 30 September 2024, but these considerations will continue to be explored in Phase IV (1 October 2024 to 30 September 2028).
V – PARTNERSHIPS
A. EU-NATO
40. The EU-NATO Structured Dialogue on Military Mobility convened in November 2023 and June 2024, brought together the relevant staff from both organisations. It is an effective framework to present and update on the latest developments, while also an opportunity to exploring areas of further cooperation, with a view to ensuring coherence and mutual reinforcement. NATO participated at the EDAs Military Mobility Symposium in January 2024 and NATO staff attended an EDA meeting on the digitalisation of military customs process related to the EU/NATO Customs Form 302. NATO representatives also participated in the second annual Military Mobility event in June 2024 and NATO’s Joint Support Enablement Command attends relevant meetings of the PESCO project on Military Mobility on an informal basis.
41. The participation of non-EU NATO allies in relevant PESCO projects continues to provide added value, including from a transatlantic and EU-NATO perspective. In addition to the United States, Canada, Norway and the UK, the Council is considering adopting a decision to authorise inviting Switzerland to participate in the PESCO project on Military Mobility. Although the Administrative Arrangement between the project and the UK is pending conclusion, the UK does attend all relevant project meetings as an “incoming third state partner”. The Administrative Arrangement for Canada’s participation in the Network Logistical Hubs PESCO Project was concluded in May 2024.
B. Connecting to other partners
42. Following its revision, the TEN-T Regulation now extends the European transport corridors to Ukraine and Moldova. The extension of the corridors builds on the EU’s efforts to strengthen these countries’ transport connectivity with the EU, such as the ‘Solidarity Lanes’ initiative the Commission launched in May 2022 to help Ukraine keep its trade routes open following Russia’s blockade of Ukrainian ports.
43. On 30 January 2024, the EDA, in cooperation with the Belgian Presidency of the Council of the EU, held a High-level Symposium on Military Mobility in Brussels. The event brought together senior officials, including the EU’s High Representative for Common Foreign and Security Policy and several EU defence ministers. Representatives from NATO and the United States also participated, underscoring the importance of transatlantic cooperation in improving military mobility. The discussions focused on the challenges posed by the changing security environment, highlighting the need for greater collaboration among EU Member States and international partners.
VI – CONCLUSIONS AND WAY FORWARD
44. The Draghi Report21 of September 2024 on the future of EU competitiveness reiterates the arguments that were previously detailed in the Action Plan on Military Mobility 2.0 and the commitments made by Member States in the Military Mobility Pledge 2024. The most notable of these arguments is transport infrastructure is a strategic consideration for Member States’ armed forces to respond quickly and at scale to crises, within and beyond the EU’s borders. The Niinistö Report22 of October 2024 on strengthening Europe’s civil and military preparedness and readiness (“Safer together: Strengthening Europe’s civilian and military preparedness and readiness”) identifies Military Mobility as a model for improved EU dual-use policy, and it recommends to develop this capability further.
45. Two years into the implementation of the Action Plan on Military 2.0, relevant actions have been launched across the four main priority areas, demonstrating continued progress and reflecting the shared sense of urgency in light of regional and global security crises and challenges. To achieve the common objective of a well-functioning military mobility network, all relevant stakeholders must continue their respective actions as part of a coordinated whole-of-government approach. The updated Military Mobility Pledge 2024 by Member States, will further contribute to this aim, building on the work of relevant PESCO projects within the wider scope of the Action Plan.
46. The High Representative and the Commission will present the next Progress Report by the end of 2025.
1 Action plan on military mobility 2.0.pdf (europa.eu)
2 Council Conclusions on EU Security and Defence of 27 May 2024
3 Joint Report to the European Parliament and the Council on the implementation of the Action Plan on Military Mobility from November 2022 to October 2023 – JOIN(2023) 37
https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52023JC0037
4 Network of Logistic Hubs in Europe and Support to Operations
5 Commission Implementing Decision of 7.3.2024 on the selection of Military Mobility projects following the 2023 call for proposals for grants under the Connecting Europe Facility - Transport sector pursuant to Implementing Decision C(2023) 4886, { C(2024) 1421 final }; a full overview of selected projects is available under this link.
6 Proposal for a Regulation of the European Parliament and of the Council on Union guidelines for the development of the trans-European transport network (COM (2021) 812).
7 Amended proposal for a Regulation of the European Parliament and of the Council on Union guidelines for the development of the trans-European transport network, amending Regulation (EU) 2021/1153 and Regulation (EU) No 913/2010 and repealing Regulation (EU) 1315/2013 (COM(2022) 384 final).
8 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 (Text with EEA relevance),
OJ L, 2024/1679, 28.6.2024, ELI: http://data.europa.eu/eli/reg/2024/1679/oj
9 Northern, Central Northern, Central Southern and Eastern Corridors.
10 Revised Annex II of the Military Requirements for Military Mobility within and beyond the EU (ST 11373/19) of 27 March 2023.
11 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, C(2021) 5859, OJ L 288, 11.8.2021.
12 COM(2023) 443/2; Proposal for a Regulation of the European Parliament and of the Council on the use of railway infrastructure capacity in the single European railway area, amending Directive 2012/34/EU and repealing Regulation (EU) No 913/2010; available here.
13 Poland – Netherlands – Germany
14 Italy – Albania - North Macedonia - Bulgaria – Romania and Greece - Bulgaria - Romania
15 Iceland - Norway - Sweden – Finland – Denmark and Italy – Slovenia – Croatia – Hungary and Romania – Bulgaria - Türkiye
16 Lithuania, Germany, Estonia, Bulgaria, Poland, Luxembourg, Romania, Czech Republic, Latvia.
17 Council Conclusions on the development of the European Union's Cyber Posture; ST09364/22, 23 May 2022.
18 NIS Cooperation Group: EU cybersecurity risk evaluation and scenarios for the telecommunications and electricity sectors. https://ec.europa.eu/newsroom/dae/redirection/document/107357
19 Proposal for a Regulation of the European Parliament and of the Council on the screening of foreign investments in the Union and repealing Regulation (EU) 2019/452 of the European Parliament and of the Council (COM(2024) 23 final); available here.
20 Joint Communication to the European Parliament and the Council: a new outlook on the climate and security nexus: addressing the impact of climate change and environmental degradation on peace, security and defence {JOIN(2023) 19 final}.
21 https://commission.europa.eu/document/download/97e481fd-2dc3-412d-be4c-f152a8232961_en.
22 https://commission.europa.eu/document/download/5bb2881f-9e29-42f2-8b77-8739b19d047c_en?filename=2024_Niinisto-report_Book_VF.pdf
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