23 februarie, 2015
Actuala reglementare modifica substantial cadrul de acordare a ajutoarelor de stat pentru aeroporturi si companii aeriene din Uniunea Europeana. Incepand cu aprilie 2014, finantarile din resurse publice acordate aeroporturilor si companiilor aeriene trebuie sa fie compatibile cu limitarile si conditiile impuse de catre Comisia Europeana, beneficiarii riscand altfel sa returneze finantarile publice nelegal acordate. Scopul reglementarilor este acela de a asigura transparenta si coerenta proiectelor finantate, pastrand climatul concurential (benefic) pe piata interna si incurajand mobilitatea cetatenilor din toate regiunile UE.
February 23rd, 2015
The current Guidelines substantially alter the framework for granting State aid to airports and airlines in the European Union. Starting 2014, public funding for airports and airlines must be compatible with the limitations and the conditions imposed by the European Commission, in order to prevent beneficiaries from refunding the illegal public financing received. The purpose of the Guidelines is to ensure transparency and consistency of the funded projects, while maintaining a competitive climate (beneficial) for the domestic market and encouraging the mobility of citizens across all EU regions.
1. Pastrarea climatului concurential – un criteriu-cheie pentru acordarea finantarilor
La data de 04.04.2014 au intrat in vigoare Orientarile Comisiei Europene nr. 2014/C 99/03 privind ajutoarele de stat destinate aeroporturilor si companiilor aeriene. Aceste Orientari inlocuiesc Orientarile din 1994 si 2005 privind sectorul aviatiei si traseaza cadrul juridic si economic in care vor fi acordate finantarile publice pentru aeroporturi si companii aeriene. In esenta Orientarile precizeaza in ce conditii aceste finantari publice pot constitui sau nu ajutoare de stat[1] si, in cazul In care este vorba de un ajutor de stat, in ce conditii acesta poate fi declarat compatibil cu piata interna[2].
Scopul Orientarilor Comisiei Europene este de a incuraja concurenta loiala si cresterea economica in toate regiunile Europei. De aceea, ajutoarele de stat vor fi acordate doar in anumite conditii, clar stipulate, pentru a evita denaturarea concurentei pe piata interna, (i.e. evitarea multiplicarii aeroporturilor neprofitabile prin aparitia mai multor aeroporturi in aceeasi zona deservita). In baza noilor orientari pot beneficia de ajutoare de stat atat aeroporturile – pentru investitii si cheltuieli de exploatare, cat si companiile aeriene – pentru infiintarea de noi rute.
2. Principalele noutati privind acordarea ajutoarelor de stat
Orientarile instituie plafoane care limiteaza ponderea ajutoarelor de stat in cuantumul destinat investitiilor, exploatarii sau infiintarii de noi rute.
Conform noilor Orientari, ajutoarele de stat sunt compatibile cu buna functionare a pietei interne, in urmatoarele conditii:
- contributia la un obiectiv de interes comun bine definit: o masura de ajutor de stat trebuie sa aiba un obiectiv de interes comun conform articolului 107 alineatul (3) din Tratat. De exemplu, in cazul ajutoarelor pentru investitii acordate aeroporturilor, aceasta conditie este indeplinita daca masura de ajutor de stat sporeste mobilitatea cetatenilor Uniunii Europene si conectivitatea regiunilor prin stabilirea de puncte de acces pentru zborurile efectuate in interiorul Uniunii, insa, multiplicarea aeroporturilor nerentabile sau crearea de capacitati suplimentare neutilizate nu contribuie la indeplinirea unui obiectiv de interes comun;
- necesitatea interventiei statului: o masura de ajutor de stat se justifica in situatia in care ajutorul poate aduce o imbunatatire substantiala pe care piata nu o poate realiza pe cont propriu, de exemplu necesitatea finantarii unei investitii in infrastructura, care ar fi mai greu de acoperit pe cont propriu de catre un aeroport mic;
- caracterul adecvat al masurii de ajutor: masura de ajutor trebuie sa fie un instrument de politica adecvat atingerii obiectivului de interes comun; in cazul ajutoarelor de exploatare, aceasta conditie presupune ca valoarea ajutorului de stat acordat sa fie prestabilita pe baza unui plan de afaceri, sub forma unei sume fixe care sa acopere deficitul de finantare preconizat;
- efectul stimulativ: ajutorul trebuie sa determine intreprinderile in cauza, sa desfasoare o activitate suplimentara pe care nu ar desfasura-o in absenta ajutorului sau pe care ar desfasura-o in mod diferit sau limitat sau intr-un alt loc. De exemplu, ajutoarele la infiintarea unei noi rute pot contribui la dezvoltarea aeroporturilor regionale implicate;
- proportionalitatea ajutorului: valoarea ajutorului trebuie sa se limiteze la minimul necesar investitiei sau a activitatii suplimentare in zona vizata. Aceasta conditie vizeaza atat costurile eligibile, cat si valoarea (intensitatea) maxima autorizata a ajutorului de stat;
- evitarea distorsionarii concurentei si a schimburilor comerciale dintre statele membre: efectele negative ale ajutorului trebuie sa fie limitate, astfel incat bilantul general al masurii sa fie pozitiv. Ajutoarele de exploatare acordate unui aeroport situat in aceeasi zona pe care o deserveste un alt aeroport, vor fi considerate compatibile cu piata interna numai in cazul In care statul membru demonstreaza ca toate aeroporturile din zona respectiva vor fi In masura sa isi acopere integral cheltuielile de exploatare la sfarsitul perioadei de tranzitie de 10 ani, incepand cu 04.04.2014;
- transparenta ajutorului: statele membre, Comisia Europeana, operatorii economici si publicul interesat trebuie sa poata accesa cu usurinta textul integral al tuturor schemelor de ajutoare aplicabile in sectorul aviatiei, precum si informatiile relevante referitoare la ajutoarele individuale, informatii care trebuie sa se regaseasca online, pe un site internet consacrat ajutoarelor de stat acordate la nivel national sau regional.
Actuala reglementare modifica substantial cadrul de acordare a ajutoarelor de stat aeroporturilor, stabilind in linii mari urmatoarele conditii si limitari.
- In ceea ce priveste ajutoarele pentru investitii, aeroporturile cu un trafic anual mai mic de 1 milion de pasageri au posibilitatea de a-si acoperi pana la 75% din cheltuielile eligibile, in timp ce, aeroporturile cu un trafic anual intre 3 si 5 milioane de pasageri, au posibilitatea de a-si acoperi prin finantare publica costurile de investitii doar In proportie de maxim 25%. Pe de alta parte, aeroporturile cu un trafic anual mai mare de 5 milioane de pasageri, nu pot beneficia de ajutoare de stat pentru investitii decat In circumstante exceptionale, cum ar fi relocarea unui aeroport existent. In aceasta situatie necesitatea interventiei statului este imperioasa, absenta ei cauzand o disfunctionalitate clara a pietei.
- In cazul ajutoarelor de exploatare acordate aeroporturilor regionale, acestea pot fi declarate compatibile cu piata interna pe perioada de tranzitie de 10 ani mentionata anterior. Dupa incheierea perioadei de tranzitie nu se mai poate autoriza acordarea niciunui ajutor de exploatare, cu exceptia cazului in care ajutorul este acordat in temeiul normelor orizontale (legislatia europeana prin care anumite categorii de ajutoare de stat sunt declarate compatibile cu piata comuna). Cu toate acestea, in ceea ce priveste aeroporturile in care traficul anual nu depaseste 700.000 de pasageri, Comisia Europeana reevalueaza, dupa o perioada de patru ani, daca aceste aeroporturi mai au nevoie de ajutoare de stat pentru a deveni rentabile, fara a distorsiona concurenta.
Referitor la companiile aeriene, acestea pot beneficia de ajutoare la infiintare in perioada de tranzitie, si chiar si ulterior, in cazul in care aceste ajutoare le ofera stimulentele necesare pentru a crea noi rute de pe aeroporturile regionale. Acest fapt e menit sa contribuie la cresterea mobilitatii cetatenilor Uniunii Europene prin crearea de puncte de acces pentru zborurile In interiorul Uniunii Europene si sa stimuleze dezvoltarea regionala.
De asemenea, noile Orientari stabilesc ce categorii de ajutoare de stat pentru aeroporturi si companii aeriene trebuie notificate Comisiei Europene, in functie de modul de furnizare a ajutorului de stat: prin intermediul unei scheme de ajutor sau printr-un ajutor individual.
3. Aplicarea noilor Orientari
Statele membre vor trebui sa isi modifice, daca este necesar, propriile scheme de ajutoare existente pentru a le alinia la actualele Orientari.
Termenul limita pentru operarea acestor modificari este 04.04.2015, respectiv 12 luni de la data intrarii In vigoare a Orientarilor. In cazul Romaniei acest lucru inseamna, in mare, faptul ca toate schemele de ajutoare de stat existente destinate aeroporturilor si companiilor aeriene trebuie modificate astfel incat acestea sa respecte conditionarile noilor Orientari.
Comisia Europeana va aplica principiile stabilite In Orientari in toate cazurile care vizeaza ajutoarele de stat (acordate aeroporturilor si companiilor aeriene) adica, atat ajutoarelor aflate in procedura de notificare, cat si ajutoarelor nenotificate, chiar daca acestea au fost acordate inainte de 04.04.2014.
4. Aspecte practice pentru actorii implicati
Comisia Europeana poate invalida retroactiv finantarile publice – resurse de stat, daca nu respecta noile Orientari.
Pentru perioada 2014 – 2030, dezvoltarea infrastructurii aeroportuare din Romania se va realiza in baza proiectelor prevazute in Master Planul General de Transport al Romaniei 2014-2030, acestea fiind finantate prin intermediul schemelor de ajutor de stat sau a ajutoarelor individuale, care trebuie sa respecte noile Orientari.
Proiectele care vor fi finantate fara a respecta obligatia de autorizare a ajutorului de stat de catre Comisia Europeana, vor fi invalidate retroactiv, iar beneficiarilor li se va impune sa returneze fondurile primite, asa cum s-a intamplat in cazul aeroportului Zweibrücken din Germania si al aeroportul Charleroi din Belgia.
In primul caz, aplicand principiile consacrate in actuala reglementare, Comisia Europeana a considerat ca ajutorul de stat primit de aeroportul Zweibrücken si de companiile aeriene care operau in cadrul sau, in perioada 2000-2009, era incompatibil cu normele Uniunii Europene. Comisia a avut in vedere criteriul proximitatii si a constatat ca, in conditiile in care aeroportul se afla la numai 40 km de un alt aeroport care nu opera la capacitatea sa maxima, existenta celor doua reprezenta o risipa a banilor publici si o denaturare a concurentei.
In cazul aeroportul Charleroi din Belgia, acesta a primit in mod constant ajutoare de stat semnificative, in principal sub forma platii unei redevente de concesiune extrem de reduse catre Regiunea Walloon, in schimbul dreptului de a opera infrastructura comerciala. Astfel, desi atat aeroportul, cat si regiunea, s-au dezvoltat considerabil, in acelasi timp s-a produs o importanta denaturare a concurentei in raport cu aeroportul Zaventem aflat in apropiere. Comisia a considerat ca numai o parte a ajutorului era justificata, stabilind astfel obligativitatea restituirii a 6 milioane de euro si instituirii unei redevente de concesiune juste.
[1] În sensul articolului 107 alineatul (1) din Tratatul privind funcționarea Uniunii Europene.
[2] În temeiul articolului 107 alineatul (3) litera (c) din Tratatul privind funcționarea Uniunii Europene.
1. Maintaining a Competitive Environment – a Key Criterion for Funding
The European Commission’s Guidelines no. 2014/C99/03 on State aid for airports and airlines entered into force on April 4th, 2014. The Guidelines – replacing the 1994 and 2005 versions on aviation – outline the legal and economic setting in which public funding may be granted to airports and airlines. Essentially, the Guidelines specify the conditions under which public funding qualifies as State aid[1] and also the conditions under which State aid can be deemed compatible with the internal market policy[2].
The aim of the Guidelines is to encourage fair competition and growth across the European Union. Therefore, State aid will only be granted in clearly stated conditions, in order to avoid distorting competition in the internal market (i.e. avoiding multiple unprofitable airports by the development of several airports in the same served area). Under the new Guidelines both airports – applying for funds to cover investment and operating costs – as well as airlines – aiming to establish new routes – may benefit by aid.
2. Key Highlights of State Aid
The Guidelines set limitations on the amount of the State aid (% share) for investment, exploitation or establishment of new routes.
Under the new Guidelines, State aid is compatible with the proper functioning of the internal market under the following circumstances:
- contributing to a well-defined objective of common interest: a State aid measure must have an objective of common interest according to Article 107 (3) of the Treaty. For example, in the case of investment aid to airports, this condition is fulfilled if the State aid measure increases the mobility of EU citizens and the connectivity of regions by establishing access points for flights operated within the EU, however, the multiplication of unprofitable airports or the creation of additional unused capacity does not contribute to an objective of common interest;
- the need for State intervention: a State aid measure is justified where aid can make a substantial improvement to the market which cannot be achieved on its own, such as the need to finance an investment in infrastructure, which would be difficult for a small airport to cover on its own;
- the adequacy of the aid measure: the aid measure must be an appropriate policy instrument to achieve the objective of common interest; in the case of operating aid, the amount of State aid should be based on a business plan, and take the form of a lump sum to cover the expected financing gap;
- the stimulating effect: the aid must cause the stakeholders concerned to engage in additional operations that would otherwise not be pursued or would be pursued for a limited period of time or in a different manner or in another place. For instance, the aid earmarked for the establishment of a new route may contribute to the development of the regional airports involved;
- the proportionality of the aid: the aid allotted may not exceed the minimum amount required for the respective investment or activity. This requirement covers both the eligible costs and the maximum amount (intensity) of State aid;
- the compliance with fair competition and trade standards between Member States: the negative impact of the aid must be limited so that the overall balance of the measure is positive. Operating aid granted to an airport located in an area that is served by an additional airport will be deemed compatible with the internal market only if the Member State demonstrates that all airports in the area will be able to cover all operating expenses at the end of the transitional period of 10 years starting 04.04.2014;
- aid transparency: Member States, the European Commission, public operators and the general public must be able to easily access the full text of all applicable aid schemes in the aviation sector as well as all relevant information concerning individual aid, on a dedicated website for State aid at national or regional level.
The current Guidelines substantially alter the granting of State aid to airports, by setting the following conditions and limitations.
- Regarding investment aid, airports with an annual traffic of less than 1 million passengers are able to cover up to 75% of the eligible expenditures, while airports with an annual traffic between 3 and 5 million passengers are able to cover investment costs (with public funding) up to a maximum of 25% only. On the other hand, airports with an annual traffic of more than 5 million passengers can only receive state aid for investment in exceptional circumstances, such as the relocation of an existing airport. In this situation the need for state aid is imperative to prevent an obvious market failure.
- In the case of operating aid granted to regional airports, this can be deemed compatible with the internal market during the transitional period of 10 years mentioned above. After the transition period is finished no additional operating aid may be granted unless the aid is provided under horizontal rules (European legislation by which certain categories of State aid are declared compatible with the common market). However, in the case of airports with a traffic of 700.000 passengers annually, the European Commission reassesses, after a period of four years, if these airports need further state aid in order to become profitable without distorting competition.
Regarding airlines, they can get aid during and sometimes even after the transition stage of launching new routes, the latter being possible if the new routes connect regional airports. This is meant to increase the mobility of EU citizens by creating access points for flights within the European Union and to boost regional development.
The new Guidelines also determine which categories of state aid for airports and airlines must be notified to the European Commission, depending on how the state aid is being delivered: via a public funding scheme or via targeted, individual aid.
3. The Application of the New Guidelines
Member states will have to modify, if necessary, their existing aid schemes to align them to the current Guidelines.
The deadline for operating these changes is April 4th, 2015. For Romania, this roughly means that all existing State aid schemes for airports and airlines need to be amended so as to comply with the new Guidelines.
The European Commission will apply the principles set out in the Guidelines in all cases concerning state aid (for airports and airlines) that is, both for the aid granted via notification procedures as well as non-notified aid, even if it were granted before April 4th, 2014.
4. Implications for Stakeholders
The European Commission may retroactively invalidate State aid, if it does not meet the new Guidelines.
In Romania, airport infrastructure development during 2014 – 2030 must follow the projects outlined in the Romanian Transportation Master Plan for 2014-2030. These projects will be financed via State aid schemes and individual aid which should meet the new Guidelines.
The projects to be funded without complying with the European Commission’s requirements of State aid will be retroactively invalidated and the beneficiaries will be required to return the aid, as was the case in Germany Zweibrücken airport and Charleroi airport of Belgium.
In the former case, the Commission decided that the aid that had been received by Zweibrücken Airport and the airline companies that operated within it during 2000-2009, was incompatible with EU regulation. The Commission invoked the proximity criterion, showing that the airport is only 40 km away from another airport which did not operate at full capacity; hence the existence of the two airports represented a waste of public money and distorted competition.
Charleroi airport in Belgium constantly received significant state aid, mainly in the form of an extremely low concession fee paid to the Walloon Region in exchange for the right to operate commercial infrastructure. Thus, although both the airport and the region have been developing considerably, this affected the neighboring airport, Zaventem, leading to competition distortion. The Commission considered that only part of the aid was justified, thus deciding upon a refund of EUR 6 million and setting a fair concession fee.