This cross-border governance framework and assessment tool are designed for use by national and subnational governments that are interested in establishing or reinforcing their cross-border governance architecture. The framework identifies the main aspects that policy makers should consider when establishing or reinforcing existing cross-border co-operation initiatives. The tool serves as a self-assessment checklist, offering a comprehensive list of over 140 elements relevant to establishing, operating, monitoring, and evaluating effective cross-border governance systems.
Building More Resilient Cross‑border Regions
Considerations in Governance and Partnerships
Abstract
This cross-border governance framework and assessment tool are designed for use by national and subnational governments that are interested in establishing or reinforcing their cross-border governance architecture. The cross-border governance framework identifies the main aspects that policy makers should consider when establishing or reinforcing existing cross-border co-operation initiatives. These range from defining the purpose of enhanced cross-border co-operation, to strategic planning for transboundary development. They also include mobilising funding and financing for cross-border governance bodies and actions, as well as building political support for addressing shared cross-border challenges.
The cross-border governance tool builds on the framework and provides policy makers with a series of practical recommendations to:
Assess the need for cross-border co-operation and determine how to establish, organise and reinforce cross-border governance bodies.
Design, implement, monitor and evaluate strategic planning documents that guide the actions of cross-border governance bodies and their partners.
Ensure sustainable funding and financing for cross-border governance bodies and actions that can adapt to changing needs and circumstances.
Effectively promote and advocate for the needs and interests of cross-border regions.
The tool can also be used by non-governmental actors, including academic institutions and civil society organisations. For example, academic institutions could use this tool to contribute to the design of cross-border development strategies, assess whether cross-border co-operation bodies are meeting their objectives, and support the creation and operation of cross-border observatories. Similarly, civil society organisations could leverage the tool to advocate for an increased contribution by non-governmental actors to the work of cross-border governance bodies. For instance, they could be allowed to co-develop cross-border projects. As such, the tool can be deployed as a resource that helps include diverse community needs and voices in cross-border activities.
The OECD Cross-border Governance Framework identifies four complementary dimensions: 1) establishing and reinforcing a cross-border governance architecture; 2) planning, implementing, monitoring and evaluating cross-border co-operation initiatives; 3) funding and financing cross-border bodies and actions; and 4) promoting and advocating for cross-border development. Each dimension includes one or more development areas (Figure A A.1).
Source: Author’s elaboration.
Dimension 1: Establishing and reinforcing a cross-border governance architecture
This dimension has three development areas:
Purpose and scope of cross-border co-operation: Several conditions need to be in place before an informed decision can be made about the need to establish or reinforce a cross-border governance architecture. For instance, it is essential for policy makers to develop a robust, shared understanding of the cross-border region’s challenges and opportunities. Furthermore, there should be consensus on whether the identified challenges or opportunities can be more effectively addressed through cross-border co-operation or existing national or subnational governance structures. Fulfilling these pre-conditions can help policy makers make an informed decision about the need for, or scope of, enhanced cross-border co-operation mechanisms.
Cross-border governance bodies: This development area considers the different steps required to establish a cross-border governance body. Governance bodies that can support cross-border co-operation within the EU include EGTCs, Euroregional Co-operation Groupings (EGCs), cross-border working communities, Eurocities and Eurodistricts. This development area helps policy makers understand the process through which they can select a legal body for cross-border co-operation that is most in line with their territorial needs, objectives and available resources for cross-border co-operation.
Internal governance structures and multi-stakeholder participation: The way in which internal cross-border governance structures are set up can affect decision-making on cross-border issues. This development area focuses on the various steps involved in establishing different types of internal governance structures (e.g. assembly, office of the presidency), deciding which actors should have a voice within the cross-border co-operation body, who should be able to make decisions, and how those decisions should be made. This development area also considers ways in which governance and decision-making structures can be adapted over time in order to suit evolving needs and priorities.
Dimension 2: Planning, implementing, monitoring and evaluating cross-border governance
This dimension includes four development areas:
Strategic planning for cross-border development: This development area presents various ways in which policy makers can support strategic planning for cross-border development, ranging from creating comprehensive cross-border development strategies, to integrating a cross-border perspective into existing regional and/or local development plans. It also includes recommendations for policy makers in terms of defining their cross-border strategic planning needs, and elements to consider for the design and implementation of cross-border development strategies and action plans.
Cross-border networking and brokering: Many cross-border governance bodies work as brokers of cross-border contacts, building trust among actors and supporting the co-ordination and co-operation of cross-border initiatives. This development area outlines steps that policy makers can take in order to establish cross-border networking and brokering activities (e.g. strategic relationship building and knowledge sharing). It also identifies steps that cross-border co-operation bodies can take to build their internal capacity to lead cross-border networking and brokering initiatives.
Cross-border public service delivery: This development area lays out a series of critical considerations for cross-border regions interested in providing new cross-border services or enhancing the delivery of existing ones (e.g. public transport). It looks at issues such as defining the need for cross-border service delivery, the specific services that will be provided in the short- mid- and long-term, as well as the delivery models and funding mechanisms. It also addresses the need to assess whether legal and regulatory frameworks allow for, or are conducive to, cross-border public service delivery.
Cross-border monitoring and evaluation: Robust monitoring and evaluation mechanisms and practices are essential for cross-border co-operation. For example, they can provide data that help policy makers assess project effectiveness and make informed decisions, for example, to adjust resource allocation. This development area identifies several elements to consider by cross-border policy makers involved in designing and implementing monitoring and evaluation activities. This includes clearly defining monitoring and evaluation goals and objectives (i.e. what should be tracked). It also includes ensuring that monitoring and evaluation findings are used effectively to support cross-border decision making.
Dimension 3: Funding and financing cross-border bodies and actions
This dimension has two development areas:
Funding and financing for cross-border governance bodies: This development area identifies actions for policy makers to consider when deciding on the cross-border governance body’s funding model. These include accurately assessing and costing the human resources and operational expenses required to sustain the activities of the governance body. They also include determining an equitable and clear mechanism to set membership fees, and periodically reviewing them.
Funding and financing for cross-border actions: Cross-border co-operation bodies often turn to Interreg funding to implement projects (OECD, 2023[1]). However, there are many other funding and financing mechanisms available to them (e.g. a wide range of other EU programmes, project calls organised by national and subnational governments, private sector contributions and bank loans). This development area can guide the efforts of cross-border policy makers to mobilise and diversify funding and financing for cross-border action. It also lays out a wide range of EU funding and financing mechanisms that could be tapped into, and details other non-EU funding and financing opportunities.
Dimension 4: Promoting and advocating for cross-border development
This dimension has two development areas:
Political support for cross-border co-operation: This development area can help policy makers navigate different political challenges that can impede cross-border development, including the waxing and waning of political interest in cross-border co-operation, as well as a frequent loss of institutional knowledge on cross-border needs, priorities and efforts due to regular elections. In recognition of these challenges, the development area includes differentiated recommendations to (re)build political awareness of and support for cross-border co-operation among both newly-elected and incumbent politicians.
Cross-border promotion: Promoting cross-border areas can have multiple benefits, from economic (e.g. to attract additional business investment or tourists) to cultural (e.g. to foster a stronger sense of cross-border identity). This development area looks at the steps that policy makers can take to: (i) identify their cross-border promotion needs and goals; and (ii) develop and implement a cross-border promotion plan.
The cross-border governance tool serves as a self-assessment checklist, offering a comprehensive list of elements relevant to establishing, operating, monitoring, and evaluating effective cross-border governance systems.
Different dimensions and development areas within the tool may serve cross-border regions at different stages of their co-operation. For example, regions that are in the early stages of establishing cross-border co-operation may find Dimension 1, Establishing and reinforcing cross-border governance bodies, to be most relevant. Conversely, for governance bodies that have been operational for some time, Dimension 3, Funding and financing cross-border bodies and actions, and Dimension 4, Promoting and advocating for cross-border development, may be more pertinent as they seek to secure sustainable funding and reinvigorate political support for cross-border co-operation.
Moreover, while some development areas, such as strategic planning and stakeholder engagement, are relevant for all cross-border regions, others—such as providing cross-border public services – may depend on a region’s specific needs and goals. Similarly, while several development areas propose specific actions and considerations related to establishing and operating cross-border governance bodies, most of the elements covered by the tool are also relevant for cross-border regions that may not have a dedicated cross-border governance body.
This flexibility means that policy makers can use the entire tool as a comprehensive resource or focus on specific dimensions or development areas that are most relevant to their particular cross-border co-operation needs. It also means that this tool should not be used as a prescriptive or a one-size-fits-all template, but rather as a versatile resource that can assist cross-border regions in adapting to their unique challenges and opportunities.
Structure of the cross-border governance tool
The tool is divided into four broad governance dimensions, development areas, actions and considerations, as illustrated in Figure A A.2.
Source: Author’s elaboration.
Dimensions: This tool covers the four governance dimensions presented above. Taken together, they can guide policy makers through critical elements for setting up and managing cross-border governance arrangements, including cross-border governance bodies.
Development areas: Each dimension identifies two or more development areas. Each development area includes a description of key elements that policy makers could consider when aiming to establish or reinforce cross-border governance and proposes an overall goal that can guide the actions of policy makers.
Actions: Under each development area, the tool proposes different actions that can help cross-border regions achieve the goal.
Considerations: For each action, the tool proposes a series of considerations for steps that policy makers could take, depending on their governance needs, the development context, etc.
The check and comment boxes included in the action tables can help policy makers visualise progress, track adjustments in strategic approaches, and focus on the dimensions and goals that require particular attention.
This dimension includes three development areas: i) purpose and scope of cross-border co-operation; ii) cross-border governance bodies; and iii) internal governance structures and multi-stakeholder participation.
Development area 1: Purpose and scope of cross-border co-operation
Goal: To define the purpose and scope of enhanced cross-border co-operation, building on a robust assessment of cross-border challenges and opportunities
In recent decades, many cross-border regions in the EU have set up co-operation initiatives to address shared challenges such as limited access to public services, congestion, pollution, labour market inequalities, and disaster management. For instance, 90 European Groupings of Territorial Co-operation (EGTCs) have been established to date, ten of which have been created since 2021. This points to a continued interest across European regions in creating new cross-border governance bodies (European Parliament, 2024[2]; European Committee of the Regions, 2024[3]). Simultaneously, regions may pursue enhanced cross-border co-operation without establishing dedicated cross-border co-operation bodies.
Successfully addressing cross-border challenges, such as those mentioned above, often requires overcoming significant obstacles. These can include differences in legislation and regulations, in the responsibilities assigned to levels of government and in culture. Moreover, it takes time to establish cross-border governance bodies and build trust among cross-border actors. This means that for cross-border co-operation initiatives to be successful, policy makers should adopt a long-term perspective. It also means that enduring commitments from successive government administrations are necessary.
Therefore, when considering the need for enhanced cross-border co-operation, it is essential for the involved policy makers to develop a robust understanding of the cross-border challenges affecting the region. Similarly, policy makers should have a clear sense of the opportunities that strong cross-border co-operation might bring to the region (e.g. building economies of scale, improving public service delivery).
The following proposed actions can help cross-border regions create a shared, evidence-informed understanding of the need for enhanced cross-border co-operation. This forms the basis for defining clear cross-border co-operation objectives. The actions could help policy makers ensure that the groundwork for co-ordination and co-operation is based on mutual understanding of cross-border challenges and opportunities and buy-in, but also resilient enough to withstand shifting political landscapes.
The proposed actions (Table A A.1. ) are particularly relevant to cross-border regions that do not yet have formal cross-border governance bodies. They may, however, also be relevant to existing cross-border co-operation initiatives that are keen to revisit and refine their overall goals.
Source: Author’s elaboration.
Development area 2: Cross-border governance bodies
Goal: To establish cross-border governance bodies that can help address shared cross-border challenges and opportunities.
Before establishing a cross-border co-operation initiative to address particular development challenges, it is essential to first consider which governance mechanism(s) would be most suitable to achieving their joint objectives. There are two particularly important elements for policy makers to consider. First, they need to assess which type of governance arrangements are most suitable for reaching the cross-border region’s objectives. One possibility is to establish a cross-border governance body. However, establishing such a body is not essential for successful co-operation; across the EU, there are numerous examples of alternative governance mechanisms that have been set up to support the achievement of cross-border goals. For instance, many cross-border public services are provided by networks involving national and local government bodies and service providers (Zillmer, 2024[4]).
Second, in case a decision has been reached to create a cross-border governance body, the relevant cross-border partners should decide on the most appropriate type of body through which cross-border activities (e.g. projects, investments) can be carried out. Governance bodies that support cross-border co-operation within the EU include EGTCs, EGCs, cross-border working communities, Eurocities and Eurodistricts (European Union, 2008[5]). This selection process can be followed by adopting a founding document (e.g. a constitution) that can guide cross-border action.
The decision regarding which type of cross-border governance body to establish can be influenced by several factors. For instance, it can depend on the purpose of cross-border co-operation as defined by involved partners, levels of political commitment and available human and financial resources. The process of developing a founding document may also depend on EU- or national-level requirements, co-operation objectives and the range of tasks that partners wish to attribute to a cross-border co-operation body.
As such, when establishing cross-border governance bodies, policy makers may wish to conduct background research on the suitability and feasibility of different governance bodies that could be established, based on the framework conditions of the cross-border region. Moreover, once a body has been set up, it is also important to ensure that the drafting of its founding document complies with legal requirements and fulfils the agreed-upon objectives of all partners. This can help to create a stable basis for long-term co-operation.
The following proposed actions (Table A A.2. ) can help guide policy makers through the process of establishing a cross-border governance body. They may be particularly useful for cross-border actors that have already defined the scope and purpose of expected cross-border co-operation within a region, but that have not yet developed, or are seeking to amend, the legal basis for such co-operation to take place.
Source: Author’s elaboration.
Development area 3: Internal governance structures and multi-stakeholder participation
Goal: To set up or reinforce internal governance and stakeholder participation structures that support effective decision making on cross-border issues
When establishing a cross-border governance body, policy makers need to think about the governance structures that can help relevant actors make timely and effective decisions on transboundary issues. Such structures influence which actors have a voice, who can make decisions, how those decisions are made, and importantly, how votes are distributed among co-operating partners.
In this regard, several steps can be envisaged. First, policy makers may need to review any specific legal requirements for governance structures. For instance, the EU Regulation on a European Grouping of Territorial Cooperation requires an EGTC to establish: i) a representative assembly of EGTC members and ii) a director to act on its behalf (EUR-Lex, 2014[6]).
Second, once legal requirements are defined, policy makers need to decide which type(s) of internal governance bodies to establish. They should also determine what human and financial resources are needed and available for their effective operation. Typically, several types are formed: executive bodies (e.g. a political director or presidency office); representative bodies (e.g. assemblies of elected officials); administrative bodies (e.g. a technical staff secretariat); and consultative bodies (e.g. working groups or advisory councils), each of which can support the cross-border agenda in unique ways (European Union, 2008[5]).
Third, policy makers need to consider multi-stakeholder participation in governance bodies. This involves determining how decision making among the founding members will be organised, for example on a parity basis or based on the population size of member territories. It also requires making decisions about the involvement of external actors in the work of the cross-border governance body. This can imply identifying which actors to involve and the means through which they may participate (e.g. in working groups or a non-governmental actor forum).
The following proposed actions (Table A A.3. ) can be particularly helpful for policy makers who are in the process of establishing a cross-border governance body, and are also considering elements such as how governance and decision-making structures should be organised. They may also be useful for policy makers that have established governance and decision-making structures but are considering amending them.
Source: Author’s elaboration.
This dimension includes three development areas: i) strategic planning for cross-border development; ii) cross-border networking and brokering; cross-border public service delivery; and iii) cross-border monitoring and evaluation.
Development area 4: Cross-border strategic planning
Goal: To adopt and implement strategic planning documents that enable public and non-governmental actors to address shared cross-border challenges and opportunities
Good-quality strategic planning is an important mechanism to support effective cross-border co-operation for a number of reasons. First, it can serve as a roadmap for joint action by setting clear objectives. Second, it can support an effective allocation of resources (e.g. human, financial). Third, it can provide a benchmark against which performance can be measured. Fourth, it can create a reference point for long-term engagement, partnership, and investment.
A wide range of approaches to strategic planning are available to cross-border policy makers. These range from designing a fully-fledged, integrated cross-border development plan, to embedding a cross-border perspective into existing planning documents (e.g. regional or municipal development plans). Which approach to take depends on many factors, including the overall objective of cross-border co-operation, and whether existing national, regional, local or cross-border development plans reflect and address cross-border challenges. It also depends on the human and financial resources available to design and implement a cross-border strategic planning document.
The effectiveness of strategic planning for cross-border development rests on more than just the type of strategic planning document adopted (e.g. integrated cross-border development strategy, organisational development strategy). It also relies on its quality (e.g. the clarity of its objectives and targets) and the extent to which relevant stakeholders were engaged in its design.
The following actions and considerations (Table A A.4. ) can be useful for regions interested in establishing new cross-border governance mechanisms, for example by providing guidelines to determine the most suitable approach to cross-border strategic planning. In addition, they can be valuable for regions with established governance frameworks, for instance to help them review and strengthen existing cross-border strategic planning documents. Finally, they could support proactive communication about key cross-border objectives and how they benefit citizens and businesses.
Source: Author’s elaboration.
Development area 5: Cross-border networking and brokering
Goal: To broker cross-border contacts and information sharing, in order to support relationship-building, knowledge-building, and implementation of cross-border initiatives
One of the key objectives of many cross-border co-operation bodies is to facilitate networking among public and non-governmental actors in the cross-border region and serve as a broker of contacts and information. This role is important for building trust among actors on both sides of the border, and to support co-ordination and co-operation on cross-border initiatives.
Cross-border networking and brokering can include different tasks, such as: i) facilitating contact and exchange between actors (both public and non-governmental); and ii) facilitating flows of information (e.g. on different regulations, assignment of responsibilities of different levels of government). Such tasks may either support cross-border co-operation in a broad sense (e.g. by promoting relationship-building and knowledge sharing between cross-border actors), or by being supportive of specific sectoral objectives (e.g. securing regulatory change to support cross-border service delivery in a specific area).
The following proposed actions (Table A A.5. ) can be useful for actors involved in newly established cross-border co-operation bodies that are interested in learning more about how to set up effective cross-border networking and brokering activities. They may also be useful for actors from well-established cross-border co-operation bodies keen to consider ways to improve the effectiveness of their cross-border networking and brokering activities.
Source: Author’s elaboration.
Development area 6: Cross-border public service delivery
Goal: To provide cross-border public services that meet the needs of residents and businesses
In recent decades, many cross-border regions in Europe have started delivering cross-border public services. As of May 2022, data suggest that 1 551 cross-border public services are being delivered across the EU (ESPON, 2022[7]).
The reasons for delivering cross-border public services can be manyfold. For example, cross-border public service delivery can enhance accessibility of public services to un- or under-served territories and population groups. Cross-border public service delivery can also increase the affordability of services, through economies of scale. Cross-border public services are most frequently provided in specific sectors such as public transportation (61.5%), environmental protection and civil protection (8.6%) and disaster management (8.5%), which have recorded the greatest number of cross-border service delivery initiatives in Europe. An important share of initiatives also target education and healthcare (ESPON, 2022[7]).
It is important for policy makers wishing to initiate or enhance cross-border public service delivery to reflect on different elements. First, it is essential to define the need for, or opportunity, offered by the delivery of one or more cross-border services. It is also important to develop a robust understanding of the obstacles to public service delivery, which can range from legal or regulatory and physical, to cultural and economic reasons. Second, once an agreement has been reached about providing public service(s) on a cross-border basis, policy makers need to assess if there is a business case, and if so, carefully define the short-, mid- and long-term objectives. These objectives may be different as regions may want to start delivery through a pilot project and gradually expand the scope and type of services on offer (ESPON, 2018[8]).
Third, policy makers need to carefully assess whether national legislative and regulatory frameworks allow for, or are conducive to, cross-border public service delivery, and what modifications may be needed and which actors can make or authorise such changes. Fourth, policy makers should define the specific services that will be provided, the beneficiaries (both in terms of groups and territories), and the payment model. Fifth, they need to decide which organisation will be in charge of delivering services and how such services will be provided. This includes identifying the actors who will be involved in co-ordinating, providing and supervising the service delivery (ESPON, 2018[8]).
As cross-border public service delivery is not a linear process and can encompass a wide range of service areas, not all proposed actions (Table A A.6. ) may be equally relevant or applicable to all regions.
Source: Author’s elaboration.
Development area 7: Cross-border monitoring and evaluation
Goal: To ensure that monitoring and evaluation of cross-border governance, actions and development trends takes place, and evidence is used to improve performance
Robust, outcome-oriented monitoring and evaluation frameworks are crucial for the success of cross-border co-operation initiatives for a number of reasons. They can provide governments with data to assess the effectiveness of projects and help policy makers make informed adjustments, for example to meet changing needs. By providing evidence about the benefits of cross-border actions or shining a spotlight on areas that need attention, monitoring and evaluation can help shore up support for cross-border co-operation. Moreover, making monitoring and evaluation data publicly available can enhance transparency in public action (including spending), strengthen accountability, and help build trust in cross-border action.
When designing their monitoring and evaluation approach, cross-border co-operation bodies and their partners can consider several steps. First, it is important for them to define their monitoring and evaluation goals and what criteria to track. This can include the implementation of a strategic planning document (e.g. integrated cross-border development strategy), cross-border development trends (e.g. cross-border labour mobility, pollution), or cross-border service delivery (e.g. access and quality of public services provided).
Second, cross-border co-operation bodies and their partners should critically assess the human, financial, and material resources (e.g. IT resources) necessary and available to ensure quality and sustained monitoring and evaluation. For instance, increasing the availability of comparable local level data (e.g. on economic, social and demographic indicators) may require stable funding to work with research institutions.
Third, cross-border co-operation bodies may wish to identify public and non-governmental needs for cross-border data, determine where gaps exist, and explore how they can be bridged. For example, by facilitating collaboration between statistics institutes and research centres, cross-border co-operation bodies can help address challenges related to cross-border data comparability, thereby enhancing the utility of the data collected.
The following actions and considerations (Table A A.7) can be useful for regions interested in establishing new cross-border governance mechanisms or reinforcing existing ones. For example, they can provide guidance on how to ensure that monitoring and evaluation findings are used to improve strategy implementation. The actions and considerations may also help cross-border co-operation bodies identify actions to increase the availability and use of data on cross-border priorities, thereby contributing to better informed cross-border policies and actions.
Source: Author’s elaboration.
This dimension includes two development areas: i) funding for cross-border governance bodies; and ii) funding and financing for cross-border projects.
Development area 8: Funding for cross-border governance bodies
Goal: To ensure sustainable and adaptable funding for cross-border governance bodies
For cross-border governance bodies to be able to carry out their mandate, it is essential that they have sustainable funding to support their day-to-day operations. This includes funding to establish and sustain human (e.g. staff, their skills) and material (e.g. office space) resources and training.
The main source of funding for cross-border governance bodies such as EGTCs tends to be member contributions (OECD, 2023[1]). To ensure sufficient and predictable revenues and sustain the capacity of cross-border governance bodies over time, a number of matters need to be considered.
First, cross-border partners should define a clear system for determining membership fees. The statutes of the cross-border governance body can be used to clarify membership fees, for example by establishing the percentages of the total volume of membership fees that each member needs to pay. Second, in order to ensure that the financial capacity of the cross-border governance body can adapt to changing needs, it is important to ensure that membership contributions are periodically revised. Third, cross-border policy makers should also consider mobilising other funding sources to cover staff and operational costs. Examples include operational grants from members and/or external stakeholders (e.g. business associations, national government institutions) and user charges and fees for the delivery of cross-border public services (e.g. transport). Fourth, it is important to develop a multi-year budget to ensure that funding, and member contributions in particular, are sustainable and aligned with projected staffing and operational needs. It can also help to clarify financial expectations for members, for example as regards their financial contributions.
The following actions and considerations (Table A A.8) can be useful for regions interested in establishing new cross-border governance mechanisms. For example, they can provide a structured framework for assessing funding needs and ensuring financial viability, including by ensuring new bodies are well-resourced from the start. The actions can also help existing bodies enhance their financial sustainability, for example by conducting regular reviews of membership contributions and adjusting them to meet changing needs.
Source: Author’s elaboration.
Development area 9: Funding and financing for cross-border actions
Goal: To ensure sufficient funding and financing to implement cross-border projects that contribute to cross-border needs and priorities
To implement cross-border development initiatives, governance bodies need to secure sufficient and diversified funding and financing. Cross-border co-operation bodies often turn to the EU Interreg programme to mobilise funding and financing for specific cross-border initiatives (OECD, 2023[1]). However, there are many other funding and financing opportunities for cross-border projects at the EU, national and regional levels, as well as from private sector stakeholders.
Efforts to mobilise and diversify funding and financing for cross-border action should be based on a clear assessment of cross-border needs and priorities. This can help limit the practice of ‘chasing’ funding and financing opportunities regardless of whether the funding calls are closely linked to local priorities. The latter can result in using scarce human and financial resources to develop project proposals that, if awarded, may not add significant value to the cross-border region. Based on the specific cross-border needs and priorities, the objectives, goals and scope of possible projects can be identified, as well as appropriate funding and financing opportunities.
Financing mechanisms to consider include EU programmes under shared management (e.g. Cohesion Policy funds), as well as EU programmes under direct and indirect management (e.g. Horizon Europe, LIFE, Europe Creative) that offer project-based funding on specific themes (e.g. research, environment, culture).
Moreover, cross-border regions could also consider mobilising project funding and financing from individual members of a cross-border body or external public actors (e.g. national or regional government institutions) (OECD, 2023[1]). Cross-border regions could also explore financing from the private sector, for example to help deliver cross-border public services (e.g. public transport).
Establishing a cross-border investment fund with the support of national and subnational governments and development banks is another option. Such a fund could provide more reliable financing for projects and reduce the administrative costs associated with seeking project funding.
Efforts to mobilise funding and financing for cross-border action (Table A A.9. ) should be based on a sound assessment of the financial and human resource capacities needed and available to support such efforts. These could include skills for drafting project proposals, project monitoring or establishing public-private partnerships.
Source: Author’s elaboration.
This dimension includes two development areas: i) political support for cross-border co-operation; and ii) cross-border promotion.
Development area 10: Political support for cross-border co-operation
Goal: To generate durable political commitment to and support for cross-border co-operation initiatives
Ensuring commitment and support for cross-border co-operation over time is essential for resolving challenges within a transboundary area. Initial political commitments on cross-border co-operation can only be translated into concrete action and results through long-term political interest and support. Common political obstacles to cross-border co-operation can include initial enthusiasm among politicians followed by a gradual loss of interest; a lack of awareness among national governments of cross-border needs or limited awareness about the potential benefits of enhanced cross-border co-operation (e.g. increased competitiveness) (OECD, 2023[1]). Another challenge is that regular national and subnational electoral cycles can lead to a loss of institutional knowledge of cross-border issues and priorities among politicians. Finally, there is a risk that an increase in political partisanship may undermine relationships within the transboundary area and lead to a more limited interest in cross-border co-operation.
In order to address these issues, cross-border co-operation bodies need to galvanise lasting political support for transboundary initiatives. This may include, for example, working with newly elected officials in order to build their awareness of and commitment to cross-border co-operation. It may also include working with more long-standing political representatives, in order to redirect their attention towards local challenges and the ability of cross-border actions to address them. Finally, political support for cross-border co-operation can be bolstered in an indirect manner by increasing citizen engagement. This can spur politicians to reach and implement cross-border agreements in areas that address these local priorities.
The following actions (Table A A.10.) can be useful for regions that are interested in building durable political coalitions for cross-border action. In particular, they explore critical factors that policy makers need to consider when promoting and advocating for cross-border development, including priority-setting, messaging approaches, tools and platforms, use of data, human and financial resource capacity. They also include some indicative examples of actions that may help to generate and sustain political commitment and support for cross-border co-operation.
Source: Author’s elaboration
Development area 11: Cross-border promotion
Goal: To enhance the visibility and appeal of the cross-border region for residents, visitors and investors through targeted and consistent promotion efforts
A factor that can support the long-term success of a cross-border region is ensuring that it is being promoted effectively among external stakeholders and the wider public. Promotional activities can support the development of a cross-border region in different ways. For instance, by drawing attention to the economic assets of the region as a whole, cross-border promotion can help attract external investment for both sides of the border. Moreover, by raising the visibility of the region’s shared or diverse culture, history and geographical features, promotional efforts can also raise the profile of the cross-border region as a tourist destination (EUR-Lex, 2017[9]). Furthermore, promoting the cross-border goods and services (e.g. universities, swimming pools, green and blue spaces, concerts, etc.) offered or available in the cross-border region can foster a sense of shared cross-border identity and increase support for cross-border co-operation.
Different options are open to policy makers to support cross-border promotion within their region. These can include the dissemination of promotional messages through both traditional and digital media platforms, the creation of a shared tourism brand, as well as tailored events or promotional offerings. While activities will vary widely depending on each cross-border region’s goals, previous examples by EGTCs include organising cultural events (e.g. cross-border walks or festivals), as well as providing subsidised cross-border public services to local residents (OECD, 2023[1]).
The following proposed actions (Table A A.11. ) provide a sequential list of elements to consider for cross-border actors seeking to identify their promotional needs and goals, as well as develop an implementation plan.
Source: Author’s elaboration.
References
[7] ESPON (2022), Cross-border Public Services 2.0, https://archive.espon.eu/sites/default/files/attachments/Final%20report%20Cross%20Border%20Public%20Services%202.0.pdf (accessed on 3 June 2024).
[8] ESPON (2018), Final Report. Practical Guide for Developing Cross-border Public Services, https://archive.espon.eu/sites/default/files/attachments/ESPON%20CPS%2002%20Practical%20guide.pdf (accessed on 30 April 2024).
[9] EUR-Lex (2017), Opinion of the European Committee of the Regions — Tourism as a driving force for regional cooperation across the EU, https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:52015IR6648&from=RO (accessed on 7 June 2024).
[6] EUR-Lex (2014), Consolidated text: Regulation (EC) No 1082/2006 of the European Parliament and of the Council of 5 July 2006 on a European grouping of territorial cooperation (EGTC), https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A02006R1082-20140622 (accessed on 15 May 2024).
[3] European Committee of the Regions (2024), List of European Groupings of Territorial Cooperation, https://cor.europa.eu/en/our-work/Documents/Official_List_of_the_EGTCs.pdf (accessed on 21 May 2024).
[2] European Parliament (2024), European Groupings of Territorial Cooperation (EGTCs), https://www.europarl.europa.eu/factsheets/en/sheet/94/european-groupings-of-territorial-cooperation-egtcs- (accessed on 23 April 2024).
[5] European Union (2008), INTERACT Handbook. The European Grouping of Territorial Cooperation (EGTC), http://www.espaces-transfrontaliers.org/fileadmin/user_upload/documents/Espace_Membres/Ressources_juridiques/INTERACT_Handbook_EGTC_08.pdf (accessed on 23 April 2024).
[1] OECD (2023), Interviews with local stakeholders organised as part of the “Building More Resilient Cross-border Regions” project.
[4] Zillmer, S. (2024), Governance mechanisms for cross-border public service delivery and the role of EGTCs, https://www.youtube.com/watch?v=jQCnS9tfkJE (accessed on 3 July 2024).