Study "Cross-border public services: CPS inventory analysis and policy recommendations"

1. Cross-border public services take central stage

Access to healthcare across the border from Latvia to Estonia, improved labour mobility alongside the entire German-French border, conservation of geological and natural resources in 14 Austrian and Slovenian municipalities, faster rescue services in case of emergencies between Norway and Sweden, energy security in the border region between Spain and Portugal, multilingual German-Polish kindergartens: here are only a couple of examples of cross-border public services. Why are they crucial in the development of cross-border areas? Cross-border public services hold significant importance in the process of harmonising the European territories and effectively addressing the diverse needs of the population. They serve as a unifying force between neighbouring regions, ensuring fair access for all citizens while optimising public money spending.

In order to better understand cross-border public services and facilitate their implementation and growth across Europe, a study was conducted to establish a clear definition and framework, compile a comprehensive inventory and analyse the current and future trends.

This report presents the findings of the study Cross-border public services (CPS), published in December 2022. The study provides the largest inventory to date of cross-border public services in the European Union. Bringing together ESPON and DG REGIO, the study compiles the findings of 2 complementary projects, the ESPON CPS 2.0 study and DG REGIO’s Cross-Border Public Services project. This joint ESPON-REGIO database currently includes 1 551 CPS and gives a snapshot of CPS development, allowing an in-depth analysis of the general trends and the way forward for future CPS deployment.

1.1. What makes this study significant?

The report is divided into 2 primary sections, namely the analysis of the ESPON-REGIO CPS database and the conclusions that emerge from it. The analysis of the ESPON-REGIO CPS database offers a comprehensive exploration of the geographical patterns of CPS provision in Europe, as well as their characterisation by policy area. The conclusions focus on the way forward and provide policy recommendations for stakeholders in charge of CPS, such as regional and local authorities, cross-border organisations and EGTCs and Interreg authorities.

The aim of the study is threefold:

• to consolidate the conceptual framework used to identify and document CPS
• to design a methodology and process for future inventory data input
• to provide concrete recommendations for a variety of actors.

Moreover, making this Pan-European territorial evidence easily available to public authorities and other public or private stakeholders is a step forward in demystifying the concept of CPS and bridging the information gap between cross-border cooperation actors and potential CPS providers in other institutions.

2. Why CPS matter and who benefits from them?

CPS increase border permeability, strengthening the cooperation between the territories. Their existence facilitates the lives of the inhabitants in a myriad of ways, depending on their geographical position and specific needs. It also supports public authorities by simplifying the information exchange and providing better coordination and planning. CPS enable technical cross-border services, such as wastewater treatment or the provision of drinking water. CPS provide useful advice and support for everyday cross-border activities, an example being smoother public transport possibilities. They can also reduce the linguistic barrier in border regions with different languages. In this way, both the general public and the authorities highly benefit from CPS.

Concretely, around 40% of the identified CPS do not target a specific audience but rather aim at the general public. The remaining 60% address specific target groups, such as cross-border workers (7.5%). Tourists (6.6%), pupils, students and apprentices (6.3%), job seekers (5.6%) and fire brigades and rescue services (5.1%) follow. These CPS are designed to meet the specific needs of special social groups.

Another large specific target group is represented by different public authorities. Even in this case, the public still benefits indirectly from the establishment of these CPS, since they increase the efficiency and quality of service for all. In the health sector, for instance, CPS can help define the legal basis for compensation by health insurers.

3. Key Findings of the Cross-border public services (CPS) study

Based on the ESPON-REGIO CPS database, 60% of identified CPS are on the borders between EU14 countries and only 6% are on the borders between EU13 countries. Benelux alone accounts for 32% of all identified CPS.

A long tradition of cross-border cooperation, as well as a high demand for services in a densely populated cross-border region, could explain why the largest number of CPS can be found in West European countries, especially in the Benelux area, where there are few language barriers. Nordic countries follow the same logic with one notable difference: the border areas are sparsely populated. Here, CPS play a strategic role. They aim to maintain public services and increase their effectiveness and efficiency by reducing costs.

In contrast, Central and Eastern European countries have a low density of identified CPS since they joined the European Union later and have a lot of backlog of demands for cross-border cooperation. Moving further south and east on the map, fewer CPS could be identified on the borders of the EU13 countries, as well as with neighbouring IPA countries.

The Alpine Space has a high density of CPS, despite the challenging geographical conditions, with many CPS in the northern Alpine region. Due to the rich common cultural heritage of the countries in the Iberian Peninsula, there are a variety of CPS, even though they are low in density compared to other regions of Europe.

3.1. The versatile reach of CPS across 9 policy areas, from transport to disaster management

There are CPS in a broad spectrum of policy areas, subdivided into fields of interventions. In total, 9 policy areas can be identified, unevenly spread across Europe.

Each policy area analysed in the study includes a geographical overview, differentiating CPS by fields of intervention, detailing aspects such as the legal framework, governance and target groups.

Some borders focus on 1 or 2 policy areas, such as the Belgian-French border, a forerunner in healthcare CPS. By a wide margin, most CPS cover transport, representing 61.5% of all identified CPS, meaning 966 out of 1 551 CPS from the ESPON-REGIO database. After transport, environment protection and civil protection and disaster management follow.

Below, a ranking of all 9 policy areas at a glance:

Some of these policy areas have public authorities as a main specific target group. For instance, in the case of civil protection and disaster management, the beneficiaries of these CPS are fire brigades, rescue services, police authorities and hospitals. These services are special in the ESPON-REGIO database, as they are ‘stand-by-services’, only operational in case of disaster, major incidents or on request for external assistance. Another example is the citizenship, justice and public security policy area, where half of the identified CPS foster closer cooperation between national and/or regional public authorities responsible for justice and public security.

30 case studies covering all policy areas show how cross-border public services have an impact on the ground. Ranging from mutual recognition of tickets and fares in the transport policy area to the establishment of an observatory on mountain refuges in the Pyrenees’ at the Franco-Spanish border, these concrete examples show the vast diversity of CPS.

In addition to the detailed case studies, a CPS Web Application has been developed, a public website presenting cross-border public services in Europe. This information portal was created by European Commission's DG REGIO and is maintained by the European Committee of the Regions.

The main part of the website is the interactive map, designed to facilitate access to the inventory and increase the visibility of CPS in Europe. At a glance, visitors can have an overview of all the CPS, their location, policy area and concentration of services in border areas. Filters and selection lists simplify the navigation experience. Case study reports and fact sheets are also accessible for selected services.

4. Conclusions and policy recommendations for future CPS deployment

The ESPON-REGIO CPS database will continue to expand with the help of a web application, meaning that this study represents only a snapshot and the figures will continuously shift. However, the underlying trends of the analysis show the way further for a wider deployment of CPS in Europe. The study proposes an updated conceptual framework of CPS. It offers a clear definition and characteristics of CPS, as well as an updated inventory of 70 fields of information that describe the services and the framework in which they operate. Having a clear conceptual framework is crucial, particularly because many public authority actors are not necessarily familiar with the term and definition of CPS. Often, actors implement CPS without being aware of the concept.

Lack of familiarity with the concept of CPS represents a major obstacle. To overcome it and close the information gap, activities to reach out to non-usual suspects for cross-border cooperation in border areas are crucial. Additional outreach channels should be exploited, such as the Futurium platform or the creation of communication campaigns showcasing existing CPS. In the same vein, convincing CPS providers to share knowledge and insist on the benefits and added value of CPS can inspire others to follow the example.

Based on the definition criteria, other ambiguities can arise. Since a CPS is a service, how can actors easily differentiate between infrastructure, projects and services? Or again, since a CPS has a target group on both sides of the border, are services not limited to the border area still considered as CPS?

Drawing clear-cut conclusions is not a straightforward task as each policy field is very differently implemented at internal EU borders despite harmonisation by EU legislation. Different legal frameworks and governance models influence the way CPS operate within the same intervention fields.

For CPS to be scaled up at all EU borders, raising awareness is crucial. In-depth research on policy areas that are relevant for all EU borders should be encouraged and supported as they clearly show that involvement from local, district and regional actors is needed. Based on the findings of the study, the report also contains recommendations (pages 114-117) for stakeholders in charge of CPS, such as regional and local authorities, cross-border organisations and EGTCs and Interreg authorities.