“Language of development” is a shared voice of many — from key EU institutions to the governments of Member States, from regions and communities to the management bodies of regional development programmes. It is used to describe the goals and principles of EU cohesion policy and to shape the financial and governance architecture of regional policy.

Therefore, as the first part of the narrative guide to EU cohesion policy covered the foundations and principles of the EU approach to reducing disparities between regions, and the second part focused on the funds and instruments, the third part will outline the key users of this language: which institutions shape the policy direction, how the European Commission operates, and how project selection, monitoring, and evaluation are ensured.

For Ukraine, this knowledge already has practical value today. Recovery, integration into the EU’s internal policies, and preparation for future participation in cohesion policy require not only an understanding of priorities and funds, but also knowing where the agenda is shaped, how decisions are made, who holds which mandates, and how to build effective cooperation with programme management bodies.

The authors did not aim to cover everything. This is not an encyclopedia and not an official document. Instead, the Swiss–Ukrainian project UCORD, in cooperation with the European Association of Development Agencies (EURADA) and the Decentralization portal, did something different: they selected the most important cohesion policy terms and explained them not in isolation, but in relation to one another.

The contents of this publication are the sole responsibility of the author(s) and do not necessarily reflect the views of the Swiss Agency for Development and Cooperation, or NIRAS Sweden AB.

Key Institutions Behind EU Cohesion policy

First, we turn to the European Union’s institutional set-up: there are 7 European institutions, 9 EU bodies and over 30 decentralised agencies, all working toward shared European interests. The powers, responsibilities and procedures of the EU’s institutions are laid down in the founding treaties of the EU: the Treaty on the Functioning of the European Union (1957) and the Treaty on European Union (1992), and also — the Lisbon Treaty (2007).

The 4 main EU institutions, with their distinct functions, work together closely to set the EU’s agenda and initiate and coordinate EU law-making:

• The European Parliament (the Parliament, or EP) is the directly-elected EU body with legislative, supervisory, and budgetary responsibilities. Consisting of the 720 MEPs (Members of the European Parliament), it passes EU laws together with the Council, oversees and holds EU institutions accountable, approves international agreements and enlargement, and shapes EU budgets.
   
• The European Council (informally EUCO) defines the general political direction and priorities of the European Union. Consisting of heads of state or government of EU countries, it does not pass laws itself, but rather asks the European Commission to make a proposal to address an issue or passes it on to the Council of the EU to deal with. The European Council defines the EU’s political agenda, addresses sensitive high-level issues, sets common foreign and security policy, and appoints candidates to key EU leadership roles.
   
• The Council of the EU (the Council) adopts EU laws and coordinates EU policies, and, together with the European Parliament, it is the main decision-making body of the EU. The Council consists of Government ministers from each EU country; each EU country holds the presidency on a 6-month rotating basis. The Council negotiates and adopts EU legislation and budget with the EP, coordinates member states’ policies, develops foreign and security policy in line with EUCO guidelines, and concludes international agreements on behalf of the EU, jointly with the EP.
   
• The European Commission (EC) proposes and enforces legislation as well as implements policies and the EU budget. Consisting of a team of Commissioners, 1 from each EU country, the European Commission proposes new laws for adoption by the EP and the Council, manages and enforces EU policies and budgets, ensures the correct application of EU law together with the Court of Justice, and represents the Union internationally, including by negotiating international agreements.

The activities of these highest EU institutions are complemented by 3 other institutions and bodies, which include:

• the Court of Justice of the European Union (CJEU), which ensures EU law is interpreted and applied the same in every EU country, and that countries and EU institutions abide by EU law. It is divided into 2 courts, the Court of Justice which deals with requests for preliminary rulings from national courts and certain actions for annulment and appeals, and the General Court which rules on actions for annulment brought by individuals, companies and, in some cases, EU governments.
• The European Central Bank (ECB) which manages the euro, keeps prices stable and conducts EU economic and monetary policy. Working with the national central banks of all EU countries, ECB manages Eurozone monetary policy by setting interest rates, controlling money supply and inflation, overseeing financial stability and payment systems, managing foreign reserves, authorising euro banknote issuance, and monitoring risks to price stability.
• The European Court of Auditors (ECA) which acts as the EU's independent external auditor. It does not have legal powers, but works to improve the Commission's management of the EU budget and reports on EU finances. Operating independently, ECA audits EU revenues and spending, monitors the use of EU funds, reports irregularities and suspected fraud, provides audit reports and expert advice to EU institutions to improve financial management and accountability. It focuses mainly on auditing the European Commission while working closely with national authorities that jointly manage most EU funds.

Of the 9 EU bodies which have specific functions in assisting the EU with the execution of its duties, 2 key bodies fulfill their advisory role to make sure that the voices of citizens, regions, and organised civil society are part of the decision-making process: they review legislative proposals by the European Commission, including those related to cohesion, and issue opinions that shape the debate and influence the laws adopted by the European Parliament and the Council of the EU.

The European Committee of the Regions (CoR) represents local and regional authorities across the Union. Because Cohesion policy is mainly implemented at the regional and local level, the CoR plays a crucial role in ensuring that EU policies reflect on-the-ground needs, challenges, and opportunities.

The European Economic and Social Committee (EESC) represents employers, workers, and a wide range of civil society groups. It ensures that new initiatives take into account the realities of businesses, social partners, and citizens.

While the committees provide input, the European Commission is where policy is shaped, coordinated, and monitored. Within the Commission, the work is divided among specialised departments known as Directorates-General (DGs). Each DG is responsible for a specific policy area and is headed by a European Commissioner.

Cohesion policy involves several DGs, but a few play particularly central roles:

DG REGIO (Regional and Urban Policy) leads the design and delivery of Cohesion policy. It negotiates programmes with Member States, monitors implementation, and ensures that investments support EU priorities.

DG ECFIN (Economic and Financial Affairs) provides the macroeconomic and fiscal framework that supports investment decisions by monitoring the economies of Member States, coordinating economic policies, and ensuring that cohesion funding promotes sustainable growth, fiscal stability, and long-term competitiveness.

DG EMPL (Employment, Social Affairs and Inclusion) shapes and implements EU employment, social inclusion, and skills strategies, ensuring that cohesion investments support job creation, workforce adaptation, social protection, and equal opportunities, particularly through the ESF+.

DG CLIMA (Climate Action) ensures that climate objectives are integrated into all major EU spending programmes, encouraging lead DGs to accelerate climate mainstreaming within their individual programmes, especially in Cohesion policy.

Together, these DGs design the policy framework, guide funding priorities, and ensure that cohesive actions remain consistent with the EU's broader economic, social, and climate ambitions.

Yet the most tangible part of Cohesion policy happens much closer to citizens — at national, regional, and local levels. This is where funds are managed, projects selected, and results delivered. The information below is sourced from the CPR (Regulation (EU) 2021/1060).

At the centre of this system are the Managing Authorities (MAs). These bodies, usually ministries, regional governments, or dedicated agencies, are responsible for efficient management and implementation of Operational Programmes. Key tasks include transmitting implementation data, ensuring funded activities meet criteria, checking co-financed products and services, recording operational data, and evaluating program performance.

Member States are required to appoint Monitoring Committees (MCs) for Cohesion policy funding programmes, which meet at least annually and comprise representatives from regional, local, urban, economic, social, and civil society sectors. These committees are responsible for assessing programme effectiveness, approving financing criteria, reviewing progress, examining results, proposing revisions, and evaluating communication efforts.

Joint Secretariats (JSs), often established for cross-border programmes such as Interreg, support the MA and the MC in carrying out their responsibilities. JSs coordinate calls for projects, provide technical support, and facilitate cooperation between partners from different regions or countries.

Within CP programmes, the Member States also designate Audit Authorities (AAs) — public bodies responsible for verifying the effective functioning of management and control systems and monitoring project compliance with national and European regulations for each program. Their tasks include system audits to check efficiency and operational audits focusing on declared expenditure, while also ensuring adequate separation of functions between the central authorities.

Finally, National Contact Points (NCPs) are established to serve as entry points for potential beneficiaries, offering guidance on available funding opportunities, eligibility criteria, and the application process.

A practical illustration of this multi-level structure is the Interreg NEXT Poland-Ukraine 2021-2027 program, which is currently active in six Ukrainian regions (Volyn, Lviv, Zakarpattia, Rivne, Ternopil, and Ivano-Frankivsk). The program's website provides a detailed description of the institutions involved and the distribution of roles, consistent with the definitions outlined above.

Ultimately, these institutional arrangements ensure that Cohesion policy is not just a top-down directive but a collaborative effort that delivers tangible benefits across all levels of governance, from Brussels to local communities.