# EUR-Lex - 52011PC0706 - EN

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# 52011PC0706

**Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing an action programme for customs and taxation in the European Union for the period 2014-2020 (FISCUS) and repealing Decisions N°1482/2007/EC and N°624/2007/EC /* COM/2011/0706 final - 2011/0341 (COD) */**

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EXPLANATORY MEMORANDUM

1.
CONTEXT OF THE PROPOSAL

On 29 June 2011, the Commission adopted a
proposal for the next Multi-Annual Financial Framework for the period 2014-2020[1]: a budget for delivering the
Europe 2020 Strategy proposing among others a new generation of Customs and
Fiscalis programmes. In line with the simplification policy of the Commission
and taking account of the existing parallels between the present Customs and
Fiscalis programmes, a single future programme is proposed (FISCUS), safeguarding
nevertheless the particularities of customs and taxation. This programme will contribute
to the Europe 2020 Strategy for smart, sustainable and inclusive growth[2], by strengthening the
functioning of the Union's Single Market and its Customs Union. By pushing
technical progress and innovation in national tax administrations towards e-tax
administrations, the new programme also contributes to
the establishment of a digital Single Market ('Digital Agenda for Europe').

The Customs Union protects the
financial interests of the Union and its Member States collecting duties, fees
and taxes[3].
It requires that goods originating from third countries comply with Union
legislation before they can move around freely within the Union. This implies
the management of large trade volumes on a daily basis
– handling 7 customs declarations every second - requiring Customs to strike a balance
between the facilitation of trade for business and the protection of citizens
against risks to their safety and security. This can only be achieved through intense operational cooperation between customs administrations of
the Member States, between them and other authorities, with trade and other
third parties. The smooth functioning of taxation
systems in the internal market is dependent on effective and efficient processing
of cross-border transactions by national tax administrations, the prevention of
and fight against tax fraud and protection of tax revenues. This implies
exchange of large quantities of information between tax administrations, making
the tax administrations working more efficiently but equally reducing the
administrative, economic and time burden for tax payers involved in
cross-border activities. This can only be achieved on the basis of intense cooperation between tax administrations of the Member
States and third parties.

The proposed programme will support the cooperation
between the customs and tax authorities and other parties concerned. It
is the successor programme of both the Customs 2013 and Fiscalis 2013
programmes which end on 31 December 2013. The proposed FISCUS
Programme will support customs and tax cooperation in the Union clustered
around human networking and competency building, on the one hand, and IT
capacity building on the other hand. The first cluster allows for the exchange
of good practices and operational knowledge amongst the Member States and other
countries participating in the programme. The latter enables the programme to
fund cutting-edge IT infrastructure and systems that allow customs and tax administrations
in the Union to evolve to fully-fledged e-administrations. The main added-value
of the programme is generated by enhancing the capacity of Member States in
raising revenue and managing increasingly complex trade flows, while cutting costs
in developing the tools for these purposes.

2.
RESULTS OF CONSULTATIONS WITH THE INTERESTED PARTIES
AND IMPACT ASSESSMENTS
2.1.
Consultations and expertise

In the context of the midterm evaluation of
the present programmes[4],
a contractor analysed the effectiveness, efficiency, relevance and value added
of the current Customs and Fiscalis 2013 programmes. Monitoring data available
from the different activities was used. For the midterm evaluation of the
Customs 2013 programme, consultations with trade representatives were carried
out.

Another contractor carried out a study of
the possible framework of the future Customs and Fiscalis programme[5]: its challenges, objectives and
possible policy options, including a comprehensive analysis of future
challenges, structural problems and possible improvements to the functioning of
the Customs Union. For the latter, consultations were carried out with Customs
experts at different levels. Considering the importance of the activities
related to the exchange of information, a separate study was carried out on the
future implementation strategy for the exchange of information. This study was
presented in workshops for Chief Information Officers of tax and customs
administrations in June 2011.

The findings of the study on the future
programmes were discussed with the representatives of the participating
countries in workshops organised in June and July 2011. In preparation of this
workshop, a roundtable was organised in spring 2011 in the relevant programme
Committees[6]
meeting where participating countries were asked to identify the main strengths
of the programme and how the efficiency of the programme could be improved.

Impact assessments were prepared analysing
the continuation of the Customs and Fiscalis programmes. These were approved by
the Impact Assessment Board.

Numerous recommendations for design and further
improvements of the programme were taken on board in the development of the
future programme proposal, notably for the design of the programme activities
and the formulation of the programme objectives. The main recommendations
related to the introduction of new specific objectives or re-emphasis of
existing ones. For the taxation sector they focused on reduction of
administrative burdens on tax administrations and taxpayers and improving
cooperation with third countries and third parties and reinforce the fight
against fraud. For the customs sector the programme should put more emphasis on
cooperation with third countries, business and trade associations as well as trade
facilitation. In addition the mid-term evaluations recommended to introduce new
tools to address new challenges, notably cooperation on specific operational
tasks, the improvement of the distribution of the results of the programme
activities taking advantage of online collaboration methods and defining a
framework to better monitor the outputs of the programme.

2.2.
Impact assessment

Considering the overall policy context and
problems ahead for customs and taxation in the next decade, a number of policy
options have been analysed and compared in the impact assessment for each of
the present programmes.

Common policy options:

(1)
Baseline: continuing
the programmes with their current objectives and design.

(2)
No continuation of the programme: both programmes would be discontinued and EU funding will no
longer be provided for IT tools, joint actions or training activities supporting
cooperation in the customs and taxation area.

Specific policy options for the Customs
area:

(3)
Increased support to EU legal obligations such
as the Modernised Customs Code (MCC): This policy
option would extend the baseline scenario tailoring the programme to the new
needs deriving from the evolving Customs Union environment. This option covers
the deployment of new IT systems as defined in EU customs legislation,
gradually introducing a shared development model for the IT systems and
modernising the underlying governance, architecture and technology.

(4)
Increased support to EU legal obligations and
financial support for technical capacity building:
Besides the components of the previous option, this option would include a
financial support scheme allowing Member States to request support to acquire
equipment to control land, sea or air borders, for instance scanners or
laboratory equipment. This would support Member States to meet the demands for
speeding up and streamlining controls in the context of evolving technologies.

(5)
Increased support to EU legal obligations with
a maximised shared IT environment: Besides the
components of option 3, this option supports EU customs to take the advantage
of full scale shared development and operation of the European IT systems to
implement EU customs legislation such as the MCC and other customs related
legislations. This option would ensure enhanced support to the public
authorities to develop and deploy all the systems necessary for a pan-European
electronic customs environment and to business to connect to those systems.

Specific policy options for the taxation
area:

(6)
Upgrade the baseline: This option would encompass the baseline scenario tailoring the specific objectives to the future challenges. It puts
additional focus on the fight against tax fraud, avoidance and evasion compared
to the present programme, addressing the high administrative burden for taxpayers
and tax administrations and considering the cooperation with third countries
and third parties. This policy option would require only a marginally higher
budget compared to the present Fiscalis programme.

(7)
Upgrade and cater for new policies: Besides addressing the problems described under the option
"upgrading the baseline scenario", this policy option would offer the
means to extend cooperation to new areas that may follow from policy
evolution and notably enable programmes to have the means to facilitate
coherent application and implementation of this new legislation and to
implement the related exchange of information and administrative cooperation.

The impact assessments lead to the
following recommendation: For Customs the "Increased support to EU
legal obligations such as the Modernised Customs Code (MCC)" option 3
is the preferred option while for taxation the "Upgrade the
baseline" option 6 is the preferred one. Both policy options are in
line with the proposal for a new budget for Europe 2020 and score on
acceptability by Member States. The option "Increased support to EU legal
obligations and financial support for technical capacity building" has not
been retained for Customs since the acquisition of equipment expressed in the
technical capacity building component could be co-funded through other
programmes including Regional Structural Funds while ensuring coherence with
the specific objectives of the proposed FISCUS Programme.

3.
LEGAL ELEMENTS OF THE PROPOSAL
3.1.
Legal basis

The FISCUS proposal is based on a double
legal basis. The customs related aspects of the proposal are based on article
33 of the Treaty on the Functioning of the European Union (TFEU) which
calls for action by the European Union with regard to customs cooperation and
the EU customs union.

Many aspects of tax policy implementation
remain predominantly of national competence. The proposed programme however
cannot be considered to be a tax policy measure falling under national
competences. Indeed, the programme aims to improve cooperation between tax
administrations providing mechanisms and means as well as the necessary
funding. As such the programme will not, when implemented by the Commission,
result in a further harmonisation of national tax systems but allow reducing
the negative effects related to the co-existence of 27 different tax systems,
such as distortions of competition, administrative burden for administrations
and taxpayers, tax shopping, etc. The proposed measure is therefore a clear
Internal Market support measure allowing the improvement of the functioning of
the various tax systems within the Internal Market. The legal basis for the taxation
related aspects of the proposed programme is therefore article 114
TFEU.

3.2.
Subsidiarity and Proportionality

Action at Union level rather than at
national level is necessary for the following reasons:

·
The customs union is an exclusive
competence of the Union. By transferring their powers to the Union, Member
States ipso facto agreed that actions in the customs area will be better
implemented at Union level. However, the Union legal framework in itself does
not ensure sufficiently the proper functioning of the Customs Union. It should
be complemented by supporting measures as provided by the Customs Programme in
order to ensure that EU customs legislation is applied in a convergent and
harmonised way.

·
Many of the activities in the customs
area are of a cross-border nature, involving and affecting all 27 Member
States, and therefore they cannot be effectively and efficiently delivered by
individual Member States. EU action is needed to underpin the European
dimension of customs work, to avoid internal market distortions and to support
the effective protection of the EU external borders.

·
In this regard, EU action is justified to ensure
the proper functioning and further development of the Customs Union and its
common regulatory framework, as it has been shown to be the most efficient and
effective EU response to shortcomings and challenges in implementing the EU
Customs Union and customs cooperation.

·
Concerning taxation, it is not sufficient
to adopt legislation at European level, taking it for granted that its
implementation will run smoothly and if not, the infringement procedure will be
sufficient. In order to efficiently implement EU and national tax law,
cooperation and coordination at the European level are necessary.

·
The challenges identified for taxation cannot
be tackled without a steering role executed by the Commission and
without encouraging Member States to look beyond the borders of their
administrative territory. Without intense cooperation and coordination between
Member States, unfair tax competition and tax shopping would increase, while
fraudsters would exploit the lack of cooperation between national authorities.

·
From an economic point of view, action at
EU level is much more efficient. The backbone of the customs and taxation
cooperation is a highly secured dedicated communication network. It
interconnects national customs and tax administrations in approximately 5 000
connection points. This common IT network ensures that every national
administration only needs to connect once to this common infrastructure to be
able to exchange any kind of information. If such an infrastructure were not
available Member States would have to link 26 times to the national systems of
each of the other Member States.

The Commission shall, according to Article
17 TEU, exercise coordinating, executive and management functions, as laid down
in the Treaties. Coordination by the Commission needs to be undertaken with
national customs and tax authorities, with specialised representatives, at
operational level and on a long term basis in view of existing and future
challenges for the Union identified in the customs and tax fields. The various
fora and tools of the Programme provide an appropriate framework for the
Commission to take on its coordinating role in the customs and tax area. The FISCUS Programme is therefore in line with the principles of
subsidiarity and proportionality (as set out in Art. 5 of the Treaty of the
European Union (TEU).

3.3.
Instrument

In line with the conclusion of the relevant
impact assessments, EU intervention by means of a funding programme
is appropriate. Taking into account the positive feedback resulting from the
midterm evaluation of the Customs 2013 and Fiscalis 2013 Programme, a successor
FISCUS Programme is being proposed by the Commission.

Although the new programme remains
primarily addressed to Member States and their authorities, it is intended that
future programme actions will - more than in the past
- involve external stakeholders. In view of this evolution the
appropriate legal instrument for establishing the programme is a
"regulation" rather than a "decision" as for previous
programmes.

4.
BUDGETARY IMPLICATION

The timing of
the review of EU funding Programmes is linked to the proposal for a new
Multiannual Financial Framework, as contained in the Commission Work Programme.
In accordance with this proposal, this Regulation on the FISCUS Programme
contains a budgetary framework of EUR 777 600 000 (in current
prices) for the period of 2014-2020.

The FISCUS
Programme will be implemented by means of a direct central management mode and
in a priority-based manner. Work programmes are established –together with the
stakeholders- stipulating the priorities for a specific period.

5.
OPTIONAL ELEMENTS
5.1.
Annotations to specific legal provisions
5.1.1.
Chapter I: General Provisions

For customs related aspects, the scope
of the programme is specifically oriented towards the functioning of the EU
Customs Union. For the taxation related aspects, the programme has been brought
in line with recent Union tax legislation meaning that it will not only cover
VAT, excised duties and taxes on income and capital but also other taxes which
are subject of EU tax legislation.

The FISCUS Programme will be open for participation
to the Member States, Candidate Countries and potential Candidates. In line
with the overall Union policy in this respect, countries of the European
Neighbourhood Policy will also have the possibility to take part in the
Programme under certain conditions. Finally, 'external experts' might also
participate in specific actions (e.g. representatives of other authorities,
trade, national and international organisations, and possibly other experts).

The objectives of the FISCUS
Programme have been re-oriented in function of the identified and expected
problems and challenges for customs and tax policy and customs and tax
authorities in the next decade. The overarching objective of the programme is to
support the functioning of the Customs Union and to strengthen the internal
market by improving the operation of the taxation systems through cooperation
between participating countries, their customs and tax administrations, their
officials and external experts.

To provide an adequate answer to the future
challenges in the customs and tax area in the Union, the following specific
objectives have been defined for the programme:

1.
to support the preparation, coherent application
and effective implementation of Union law in the fields of customs and
taxation,

2.
to contribute to the efficient functioning of
customs and tax authorities by improving their administrative capacity and
reducing the administrative burden,

3.
to prevent fraud and tax evasion and to enhance
competitiveness, safety and security by enhancing cooperation with
international organisations, other governmental authorities, third countries,
economic operators and their organisations,

4.
to strengthen the competitiveness of European
businesses through the facilitation of trade and the reduction of compliance
costs,

5.
to protect the financial and economic interests
of the European Union and its Member States through the fight against fraud and
tax evasion,

6.
(for the Customs Sector) to support customs in
protecting citizens and the economy in terms of safety and security, and in
protecting the environment.

Operational objectives have been added
concentrating on outputs to be delivered by the Programme and are available in
annex 1 of the Regulation.

5.1.2.
Chapter II: Eligible actions

The types of actions considered eligible
for programme funding are similar to the ones under the current programmes,
namely:

·
Joint Actions pursuing the exchange of knowledge
and good practice between customs and tax officials of the participating
countries

·
European Information Systems[7] facilitating the exchange of
information and access to common data and finally

·
Training activities leading to human competency
building for customs and tax officials across Europe

Modifications have been introduced in
certain categories of actions.

·
The FISCUS programme will include some new joint
action tools:

·
Steering groups (only
new for taxation) will perform activities of a coordinating nature and be
usually composed of all interested Participating Countries. They differ from
project groups, which are usually composed of a limited number of countries,
operational during a limited period of time and are working on the realisation
of a predefined objective with a precisely described outcome.

·
Expert teams are
structured forms of cooperation, pooling expertise and/or addressing specific
operational activities. They can be set up with a non-permanent or permanent
character and could possibly receive support such as online collaboration
services, administrative assistance and infrastructure and equipment facilities
to underpin the realisation and success of an action.

·
Actions for public administration capacity
building will support customs and tax authorities
that face particular difficulties, be it lacking knowledge, expertise,
organisational or any other deficiencies which can be overcome through
tailor-made support actions provided by fellow countries and or Commission
officials.

·
As regards the European Information Systems, the
new programme defines "Union components" as IT assets and services which
concern some or all of the Member States and are
owned or acquired by the Commission. These Union components are described in Annex
2 point 4 of the proposed legal act. The "national components" are all
components which are not "Union components". They are developed,
installed and operated by Member States, and thus subject to the funding and
responsibility of Member States.

The redefinition of Union components should be
seen in the light of the changing practice of IT systems development. Currently
each Member State is responsible for the implementation of its national systems
according to common specifications, resulting in 27 developments for each
system, 27 trader interfaces, 27 schedules of development, 27 sets of project
related or operational difficulties, etc. In particular in the light of the
financial crisis, the Commission considers that the development of IT systems
should be done more efficiently; including an increased number of central resources
and an increased involvement of Member States in common projects.

This simplification aims at reducing overall IT
costs and improving the consistency of data and application of rules by
gradually moving towards more shared IT development (knowledge, data, IT
components). It will bring improved working methods for instance through
business process modelling, better quality specifications but also will bring
more standardisation for instance harmonising interfaces for traders. The new
approach towards Union components will limit the risk for divergent development
and deployment plans. It also provides additional means to control the
finalisation of the project as common plans avoid that the slowest member in
the development chain determines the entry in operation of the entire project.
This increased Commission responsibility will require more specialised support
and personnel at Commission level.

5.1.3.
Chapter IV: Implementation

In order to ensure uniform conditions for
the implementation of this Regulation, implementing powers should be conferred
on the Commission. As such an annual work programme will be adopted in
accordance with the examination procedure referred to in Article 5 of
Regulation (EU) No 182/2011 of the European Parliament and the Council of 16
February 2011 laying down the rules and general principles concerning
mechanisms for control by the Member States of the Commission's exercise of
implementing powers[8].

5.2.
Simplification
5.2.1.
How did the proposal contribute to
simplification?

(a)
Coherence with the financial regulation

The programme proposal is fully coherent with
the financial regulation and its implementing provisions. Grants and
procurement are the main financial instruments used to implement the programme.
The programme incorporates the simplification measures proposed in the
Commission proposal for the revision of the financial regulation, notably the
recourse to lump sums, flat rates and unit costs. In view of the importance of
the processing of subsistence and travel costs paid under the programme, the
programme will introduce simplification measures offered by the new Financial
Regulation in this area.

(b)
Coherence between the Customs and Fiscalis 2013
programmes

The management of the previous Customs and
Fiscalis programmes had been fully aligned based upon identical procurement
rules and grant models, common management guides and IT based systems. The
management model includes clear and simple procedures for organising
programme activities. The programme management team of the Commission
is assisted by programme management teams in the different customs and tax
administrations acting as facilitator and first point of contact for customs,
respectively taxation officials in Member States. The management model allows the
deployment of activities in a short time span, some weeks at the most,
reacting quickly to newly emerging needs, while at the same time
guarding coherence between the different activities. The Member States have
expressed their satisfaction with the management model of the programme in the
midterm evaluation[9].
Considering the already close alignment between the Customs and Fiscalis
programme as well as the Commission policy of simplification, it has been
decided to propose a single Programme (FISCUS) in the framework of the
2014-2020 multiannual financial framework.

(c)
Did the programme consider externalisation?

The possibility to implement the future
Programme through an executive agency was considered. An agency could be
empowered to execute tasks such as the selection of the activities under the
programme, the administrative preparation and follow-up of the activities,
monitoring of the activities, grants and procurement of IT systems. However,
such an executive agency would add an additional layer to the governance
structure, increasing the cost of coordination and checks, complicating and
lengthening decision making by adding new administrative procedures. Also, it
would have a negative impact on the level of know-how within the Commission and
increase the risk of a fragmentation of content versus administrative aspects. This
option would not bring the expected business benefits and has therefore been discarded.

In an alternative scenario, it was also
considered to transfer all relevant IT activities to national
administrations with the exception of the CCN/CSI network and its related
services. In this scenario the risk is very high that gradually there would be
needs and initiatives to set-up more central governance structures. The
resulting impact would be similar to the effects of the discontinuation of the
programmes which would put at risk the efficiency and effectiveness of customs
and tax administrations, challenge the uniformity of the Customs Union and thus
the treatment of traders, and reduce the ability to prevent and detect fraud. Considering
the negative impacts on results and performance, this scenario was also discarded.

(d)
Does the programme use common IT tools to reduce
the administrative burden on beneficiaries and contractors?

The Customs 2013 and Fiscalis 2013 programmes already
deploy tools to facilitate the management for grants through a common Activity
Reporting Tool (ART).

5.2.2.
Performance measurement of the proposal

The performance of the programme will be
measured using a coherent set of performance, impact, result and output
indicators linked to the general, specific and operational objectives of the
programme and building the link with the Commission Management Plan. The
detailed list of impact, result and output indicators is available in the
Impact Assessments of the relevant programmes. The Commission has identified
targets for some operational objectives of the programme, others will be
completed through actions within the current programmes. The targets of all operational
objectives will be identified before the start of the 2020 programme by the
Commission and presented to the Programme Committee for endorsement in the
framework of the Annual Work Programme procedure.

5.2.3.
Is the programme proposal coherent with overall
Commission policy

The programme will contribute towards the
objectives of the Europe 2020 Strategy by strengthening the Single Market,
enhancing the productivity of the public sector and sustain technical progress
and innovation in administrations, and by promoting employment. It will support
flagships on the digital agenda for Europe[10],
the flagship initiative on the Innovation Union[11], the flagship on the Agenda
for New Skills and Jobs[12]
and the flagship initiative on an industrial policy for the globalisation era[13]. The programme will also
support the Single Market Act[14]
and promote growth and innovation by enforcing intellectual property rights
(IPR) at the border in line with the recent comprehensive IPR strategy.[15] As concerns the protection of the
financial interests of the Union and Member States, the programme will
support the collection of duties and various fees and taxes on trade, and
collaborative efforts to fight fraud. The Customs Union is the operational arm
of EU trade policy, and the programme will therefore help implementing
bilateral and multilateral trade agreements, collecting duties, and applying
trade measures (such as rules of origin), embargoes and other restrictions in
line with the EU trade strategy[16].
More recently, customs have been entrusted a role in protecting the environment
(related inter alia to illegal waste export, chemicals, ozone depleting
substances, illegal logging and the CITES convention). Finally, customs action
and cooperation between customs, police and other enforcement authorities increasingly
contributes to internal security of the EU as reflected in the action plan for
the Internal Security Strategy[17]
and in the Stockholm Programme Action Plan.[18].

2011/0341 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT
AND OF THE COUNCIL

establishing an action programme for
customs and taxation in the European Union for the period 2014-2020 (FISCUS)
and repealing Decisions N°1482/2007/EC and N°624/2007/EC

THE EUROPEAN PARLIAMENT AND THE
COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the
Functioning of the European Union, and in particular Articles 33 and 114
thereof,

Having regard to the proposal from the
European Commission,

After transmission of the draft legislative
act to the national Parliaments,

Having regard to the opinion of the
European Economic and Social Committee[19],

Acting in accordance with the ordinary
legislative procedure,

Whereas:

(1)
The multi-annual action programmes for customs and
taxation which applied before 2014 have significantly contributed to
facilitating and enhancing cooperation between customs and tax authorities
respectively within the Union. It is therefore appropriate to ensure the
continuation of those programmes by establishing a new Programme in the same
area.

(2)
Given the synergies between the programmes applicable
before 2014 and in line with the commitment of the Commission to reduce the
number of programmes as laid down in "A budget for Europe 2020"[20], the customs and tax
cooperation programmes should be replaced by one single programme. In addition,
the establishment of a single programme will permit more simplification and
coherence while the possibility to set up activities within the separate fields
of customs and taxation is preserved.

(3)
The Programme activities, i.e. the European
Information Systems, the joint actions for customs and tax officials and the
common training initiatives, are expected to contribute to the realisation of
the Europe 2020 Strategy for smart, sustainable and inclusive growth[21]. In providing a framework for
activities which strive for more efficient customs and tax authorities,
strengthen the competitiveness of businesses, promote employment and contribute
to the protection of the Union's financial and economic interests, the Programme
will actively strengthen the functioning of the customs union and the internal
market.

(4)
The taxation sector of the programme should be
brought into line with existing and upcoming Union legislation so as to allow
for supporting activities for potentially new Union taxes or legislation. For
the purposes of this Programme, taxation should therefore not only cover VAT as
provided for by Council Directive 2006/112/EC of 28 November 2006 on the common
system of value added tax[22],
excise duties on alcohol as provided for by Council Directive 92/83/EEC of 19
October 1992 on the harmonisation of the structures of excise duties on alcohol
and alcoholic beverages[23],
on tobacco products as provided for by Council Directive 2011/64/EU of 21 June
2011 on the structure and rates of excise duty applied to manufactured tobacco[24], on energy products and
electricity as provided for by Council Directive 2003/96/EC of 27 October 2003
restructuring the Community framework for the taxation of energy products and
electricity[25]
but also to all other taxes falling within the scope of Union tax legislation
in the meaning of Council Directive 2010/24/EU of 16 March 2010 concerning
mutual assistance for the recovery of claims relating to taxes, duties and
other measures[26]
.

(5)
In order to support the process of accession and
association by third countries, the Programme shall be open for the
participation of acceding and candidate countries as well as potential
candidates and partner countries of the European
Neighbourhood Policy[27]
if certain conditions are fulfilled. Moreover, considering
the increasing interconnectivity of the world economy, it is useful to provide
for the possibility to involve also external experts, such as officials of
third countries, representatives of international organisations or economic
operators in certain activities.

(6)
In view of the problems and challenges
identified for the upcoming decade, the objectives of the programmes which
applied before 2014 should be adjusted. The Programme established by this
Regulation should play a role in vital areas like the coherent implementation
of Union law, the protection of the financial and economic interests of the
Union, safeguarding safety and security and increasing the administrative
capacity of customs and tax authorities. However, given the problem dynamics of
new challenges identified, an additional emphasis should be put on fighting
fraud, reduction of administrative burden and facilitating trade.

(7)
The tools used under the programmes which
applied before 2014 have proven to be adequate and have therefore been
retained. However, in view of the need for tools allowing for more structured
operational cooperation, additional tools have been added such as expert teams composed
of the Union and national experts to perform jointly tasks in specific domains.
Furthermore, in view of recent developments, it is appropriate to provide for
the possibility to set up actions under the Programme which contribute to
administrative capacity building in order to provide specialised assistance to
those countries in need.

(8)
The European information systems play a vital role
in reinforcing the customs and taxation systems within the Union and should
therefore continue to be financed under the Programme. In addition, it should
be made possible to include in the Programme new customs and tax related
information systems established under Union legislation. The latter should be based upon shared
development models and a modern IT architecture in order to increase the
flexibility and efficiency of customs and tax administrations.

(9)
Human competency building in the form of common training should also
be realised through the Programme. Customs and tax officials need to build up
and update their knowledge and skills required to serve the needs of the Union.
The Programme should be essential to strengthen the human capacity in an
efficient way through enhanced training support that targets customs and tax
officials as well as economic operators. To this end, the current common
training approach of the Union which was mainly based on central eLearning
development should develop into a multi-facetted tax training support programme
for the Union.

(10)
The Programme should cover a period of seven years
to align its duration with that of the multiannual financial framework laid
down in Council Regulation (EU) N° xxx of xxx laying down the multiannual
financial framework for the year 2014-2020[28].

(11)
For the entire
duration of the Programme, a financial envelope should be laid down constituting
the prime reference, within the meaning of point [17] of the Interinstitutional
Agreement of XX/YY/201Z between the European Parliament, the Council and the
Commission on cooperation in budgetary matters and on sound financial
management, for the budgetary authority during the annual budgetary procedure.

(12)
In line with the Commission's commitment set out in
its Communication on the Budget Review of 2010[29]
to coherence and simplification of funding programmes, resources should be
shared with other Union funding instruments if the envisaged Programme
activities pursue objectives which are common to various funding instruments
excluding however double financing. Actions within this Programme should ensure
coherence in the use of the Union's resources supporting the functioning of the
Customs Union.

(13)
The measures necessary for the financial
implementation of this Regulation shall be adopted in accordance with Council
Regulation (EC, Euratom) No xxx/20xx of xxx on the Financial Regulation
applicable to the general budget of the European Communities, and with
Commission Regulation (EC, Euratom) No xxx/20xx of xxx laying down detailed
rules for the implementation of Council Regulation (EC, Euratom) No xxx/20xx of
xxx (references of new financial regulation and implementing act to be added).

(14)
The financial interests of the Union should be
protected through appropriate measures throughout the expenditure cycle,
including the prevention, detection and investigation of irregularities, the
recovery of funds lost, wrongly paid or incorrectly used and, where
appropriate, penalties.

(15)
In order to ensure uniform
conditions for the implementation of this Regulation,
implementing powers should be conferred on the Commission. Those powers should
be exercised in accordance with Regulation (EU) No
182/2011 of the European Parliament and of the Council of 16 February 2011
laying down the rules and general principles concerning mechanisms for control
by the Member States of the Commission's exercise of implementing powers[30].

(16)
Since the objectives of the action to be taken,
namely establishing a multi-annual programme to improve the operation of the
taxation systems in the internal market and the functioning of the customs
union, cannot be sufficiently achieved by the Member States which cannot efficiently
perform the cooperation and coordination necessary to carry out the Programme,
and can therefore, given the effects of the Programme, be better achieved on
Union level, the Union may adopt measures in accordance with the principle of
subsidiarity as set out in Article 5 TEU. In accordance with the principle of
proportionality, as set out in that Article, this Regulation does not go beyond
what is necessary in order to achieve those objectives.

(17)
The Commission should be
assisted by the FISCUS Committee for the implementation of the Programme. The
main competence of this Committee relate to the annual work programmes.

(18)
This Regulation should replace Decisions N°1482/2007/EC
of the European Parliament and of the Council of 11
December 2007 establishing a Community programme to improve the operation of
taxation systems in the internal market (Fiscalis 2013) and repealing Decision
No 225/2002/EC[31]
and Decision N°624/2007/EC of the European Parliament
and the Council of 23 May 2007 establishing an action programme for customs in
the Community (Customs 2013)[32].
Those Decisions should therefore be repealed,

HAVE ADOPTED THIS REGULATION:

Chapter I
General provisions

Article 1
Subject Matter

1.
A multi-annual action programme "FISCUS"
("the Programme") is hereby established to improve the operation of
the taxation systems in the internal market and the functioning of the Customs Union.

2.
The Programme shall be composed of a customs
sector and a taxation sector.

3.
The Programme shall cover the period 1 January
2014 to 31 December 2020.

Article 2
Definitions

For the purpose of this Regulation the
following definitions shall apply:

(a)
"customs or tax authorities" means the
authorities responsible for applying rules on customs or taxation;

(b)
"External experts" means

(1)
representatives of governmental authorities
including from countries not participating in the Programme according to
article 3 (1) and 3(2),

(2)
economic operators and their organisations,

(3)
representatives of international and other
relevant organisations.,

(c)
"taxation" means the following taxes

(1)
value added tax provided for in Directive
2006/112/EC.

(2)
excise duties on alcohol provided for in
Directive 92/83/EEC.

(3)
excise duties on tobacco products provided for
in Directive 2011/64/EU.

(4)
taxes on energy products and electricity
provided for in Directive 2003/96/EC

(5)
all other taxes falling within the scope of
Article 2(1)(a) of Directive 2010/24/EU.

Article 3
Participation in the Programme

1.
Participating countries shall be the Member
States and the countries referred to in paragraph 2 provided the conditions set
out in paragraphs 2 and 3 are met.

2.
The Programme shall be open to the participation
of any of the following countries:

(a) acceding
countries, candidate countries and potential candidates benefiting from a
pre-accession strategy, in accordance with the general principles and general
terms and conditions for the participation of those countries in Union
programmes established in the respective Framework Agreements, Association
Council Decisions or similar Agreements;

(b) partner countries of the European
Neighbourhood Policy provided that those countries have reached a sufficient
level of approximation of the relevant legislation and administrative methods
to those of the Union. The partner countries concerned shall participate to the
Programme in accordance with provisions to be determined with those countries
following the establishment of Framework Agreements concerning their
participation in Union programmes.

3.
External experts may take part in activities
organised under the Programme wherever this is useful for the achievement of
the objectives referred to in Articles 4 and 5. These experts shall be chosen
on the basis of their skills, experience and knowledge relevant to the specific
activities.

Article 4
General objective

The general objective of the Programme
shall be to support the functioning of the Customs Union and to strengthen the internal
market by improving the operation of the taxation systems through cooperation
between participating countries, their customs and tax authorities, their
officials and external experts.

This objective will be measured, inter alia
by the following indicator: the evolution of the perception of Programme
stakeholders regarding the contribution of the Programme towards the
functioning of the Customs Union and the strengthening of the internal market.

Article 5
Specific objectives

1.
The specific objectives of the Programme shall
be the following:

(a)
to support the preparation, coherent application
and effective implementation of Union law in the fields of customs and
taxation,

(b)
to contribute to the efficient functioning of
customs and tax authorities by improving their administrative capacity and
reducing the administrative burden,

(c)
to prevent fraud and tax evasion and to enhance
competitiveness, safety and security by enhancing cooperation with
international organisations, other governmental authorities, third countries,
economic operators and their organisations,

(d)
to strengthen the competitiveness of European
businesses through the facilitation of trade and the reduction of compliance
costs ,

(e)
to protect the financial and economic interests
of the European Union and its Member States through the fight against fraud and
tax evasion,

(f)
for the customs sector: to support customs in
protecting citizens and the economy in terms of safety and security, and in
protecting the environment.

2.
Each of the specific objectives above shall
be measured by an indicator based on the
perception of Programme stakeholders regarding the contribution of the
Programme to the realisation of the specific objectives.

Chapter II
Eligible actions

Article 6
Eligible actions

The Programme shall provide, under the
conditions set out in the annual work programme referred to in Article 13,
financial support for the following types of action:

(a)
Common joint actions for operational cooperation
and coordination:

(1)
seminars and workshops;

(2)
steering groups to steer and coordinate the
actions falling under their sphere of competence;

(3)
project groups, composed of a limited number of
countries, operational during a limited period of time to pursue a predefined
objective with a precisely described outcome;

(4)
working visits organised by the participating
countries or a third country to enable officials to acquire or increase their
expertise or knowledge in customs respectively tax matters; for working visits
organised by third countries only travel and subsistence (accommodation and
daily allowance) costs are eligible under the Programme;

(5)
expert teams, which are structured forms of
cooperation, with a non-permanent or permanent character, pooling expertise to
perform tasks in specific domains or carry out operational activities, possibly
with support of online collaboration services, administrative assistance and
infrastructure and equipment facilities;

(6)
public administration capacity building and
supporting actions;

(7)
studies;

(8)
communication projects;

(9)
any other activity in support of the general and
specific objectives set out in Articles 4 and 5

(b)
Specific joint actions in the customs sector
including monitoring activities carried out by joint teams made up of
Commission and officials of the Participating Countries to analyse customs
practices, identify any difficulties in implementing rules and, where
appropriate, make suggestions for the adaptation of union rules and working
methods.

(c)
Specific joint actions in the taxation sector
including multilateral controls organised by two or more participating
countries, including at least one Member State, to carry out a coordinated
control of the tax liability of one or more related taxable persons.

(d)
IT capacity building, namely development,
maintenance, operation and quality control, of Union components set out in point
4 of Annex II of the following systems:

(1)
European Information Systems set out in points 1,
2 and 3 of Annex II and

(2)
new European Information Systems established
under Union legislation

(e)
Human competency building: common training
actions to support the necessary professional skills and knowledge relating to customs
and taxation.

Article 7
Specific implementation provisions for joint actions

1.
Participating countries shall ensure that
officials with the adequate profile and qualifications are nominated to
participate in the joint actions.

2.
Participating countries shall take the necessary
measures for the implementation of the joint actions, in particular by raising
awareness within their customs or tax authorities on those actions and by
ensuring an optimal use is made of the outputs generated.

Article 8
Specific implementation provisions
for the European Information Systems

1.
The Commission and the participating countries
shall ensure that the European Information Systems referred to in points 1, 2
and 3 of Annex II are developed, operated and appropriately maintained.

2.
The Commission shall coordinate, in cooperation
with the participating countries, those aspects of the establishment and
functioning of the Union and non-Union components of the systems and
infrastructure referred to in points 1, 2 and 3 of Annex II which are necessary
to ensure their operability, interconnectivity and continuous improvement.

Article 9
Specific implementation provisions for common training

1.
Participating countries shall integrate jointly
developed training content, including e-learning modules, training programmes
and commonly agreed training standards in their national training programmes.

2.
Participating countries shall ensure that their
officials receive the initial and continuing training necessary to acquire
common professional skills and knowledge in accordance with the training
programmes.

3.
Participating countries shall provide the
linguistic training necessary for officials to ascertain a sufficient level of
linguistic competence for participation in the Programme.

Chapter III
Financial Framework

Article 10
Financial Framework

1.
The financial envelope for the implementation of
the Programme shall be EUR 777.600.000 (in current prices).

2.
The financial allocation for the Programme may
also cover expenses pertaining to preparatory, monitoring, control, audit and
evaluation activities which are required for the management of the Programme and
the achievement of its objectives; in particular, studies, meetings of experts,
information and communication actions, including corporate communication of the
political priorities of the European Union as far as they are related to
general objectives of this Regulation,
expenses linked to IT networks focusing on information processing and exchange,
together with all other technical and administrative assistance expenses incurred
by the Commission for the management of the Programme.

Article 11
Types of intervention

1.
The Commission shall implement the programme in
accordance with the Financial Regulation.

2.
Union financial support for activities provided
for in Article 6 shall take the form of:

(a)
grants;

(b)
public procurement contracts;

(c)
reimbursement of costs incurred by external
experts referred to in Article 3 (3)

3.
The co-financing rate for grants shall be up to
100 % of the eligible costs where the latter are travel and accommodation
costs, costs linked to organisation of events and daily allowances. That rate
shall apply to all eligible actions with the exception of expert teams. For
this category of eligible actions, the annual work programmes will specify the
applicable co-financing rate when these actions require the awarding of grants.

Article 12
Protection of the financial interests of the Union

1.
The Commission shall take appropriate measures
ensuring that, when actions financed under this Regulation are implemented, the
financial interests of the European Union are protected by the application of
preventive measures against fraud, corruption and any other illegal activities,
by effective checks and, if irregularities are detected, by the recovery of the
amounts wrongly paid and, where appropriate, by effective, proportionate and
deterrent penalties.

2.
The Commission or its representatives and the
Court of Auditors shall have the power of audit, on the basis of documents and
on-the-spot checks and inspections, over all grant beneficiaries, contractors
and subcontractors who have received Union funds.

3.
The European Anti-fraud Office (OLAF) may carry
out on-the-spot checks and inspections on economic operators concerned directly
or indirectly by such funding in accordance with the procedures laid down in Council
Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot
checks and inspections carried out by the Commission in order to protect the
European Communities' financial interests against fraud and other
irregularities[33]
with a view to establishing whether there has been fraud, corruption or any
other illegal activity affecting the financial interests of the European Union
in connection with a grant agreement or grant decision or a contract concerning
Union funding.

4.
Without prejudice to paragraphs 1,2 and 3, Framework
Agreements, Association Council Decisions or similar Agreements with third
countries and international organisations and grant agreements and grant decisions
and contracts resulting from the implementation of this Regulation shall empower the Commission, the Court of Auditors and
OLAF to conduct such audits, on-the-spot checks and inspections.

Chapter IV
Implementing powers

Article 13
Work Programme

1.
The Commission shall implement the Programme by
means of an annual work programme for each sector of the Programme, including
the priorities for the Programme, the breakdown of the budget and the evaluation
criteria for the grants for actions. These implementing acts shall be adopted
in accordance with the examination procedure referred to in Article 14(2) and
with the Financial Regulation

2.
For the customs sector, in preparing the annual
work programme, the Commission shall take into account the common approach
regarding the customs policy which shall continuously be adapted to new
developments in partnership between the Commission and the Member States in the
Customs Policy Group, composed of the heads of Customs administrations from the
Commission and the Member States or their representatives.

The Commission shall keep the Customs Policy
Group regularly informed of measures relating to the implementation of the
customs sector of the programme.

Article 14
Committee procedure

1.
The Commission shall be assisted by a FISCUS
Committee. The Committee may meet in two separate formations, one dealing with
aspects concerning the customs sector and the other with those concerning the
taxation sector of the Programme. The Committee shall be a committee within the
meaning of Regulation (EU) No 182/2011.

2.
Where reference is made to this paragraph,
Article 5 of Regulation (EU) No 182/2011 shall apply.

Chapter V
Monitoring and Evaluation

Article 15
Monitoring of Programme actions

1.
The Commission shall, in cooperation with the
participating countries, monitor the Programme and its actions in order to
follow the implementation of actions carried out.

2.
A set of key performance indicators set out in Article
5(2) shall be used, inter alia, to measure the effects and impacts of the
Programme. They shall be measured against pre-defined baselines reflecting the
situation before implementation.

Article 16
Evaluation

1.
The Commission shall ensure a midterm and final
evaluation of the Programme, focusing on pertinent evaluation questions and in
time to be integrated into the decision making process. The results shall be integrated
into decisions on possible renewal, modification or suspension of subsequent
programmes. An independent external evaluator shall carry out these
evaluations.

2.
The Commission shall establish a mid-term
evaluation report on the achievement of the objectives of the Programme
actions, the efficiency of the use of resources and the European added value of
the Programme no later than mid 2018. This report shall additionally address
the simplification, the continued relevance of the objectives, as well as the
contribution of the Programme to the Union priorities of smart, sustainable and
inclusive growth.

3.
The Commission shall establish a final
evaluation report on long term impact and the sustainability of effects of the Programme
no later than end 2021.

4.
The participating countries shall provide, on
request of the Commission, all data and information relevant for the purpose of
contributing to the mid term and final evaluation reports of the Commission.

Chapter VI
Final Provisions

Article 17
Repeal

Decisions No 1482/2007/EC and No
624/2007/EC are repealed with effect from 1 January 2014.

However, financial obligations related to
actions pursued under these Decisions shall continue to be governed by these Decisions
until their completion.

Article 18
Entry into force

This Regulation
shall enter into force on the twentieth day following that of its publication
in the Official Journal of the European Union.

It shall apply from 1 January 2014.

This Regulation shall be binding in its
entirety and directly applicable in all Member States.

Done at Brussels,

For the European Parliament                       For
the Council

The President                                                 The
President

ANNEX

I. Operational objectives of the Programme

The operational objectives for
implementation and monitoring of one or more of the specific objectives
provided for in Article 5 shall be the following:

1.
To set up actions enhancing common understanding
and implementation of Union law on customs and taxation

2.
To support and facilitate joint operational
customs and tax activities

3.
To develop and maintain European information
systems for customs and taxation

4.
To reinforce skills and competencies in customs
and taxation for customs and tax officials and external experts

5.
To support the development of an
e-administration for customs and tax authorities and external stakeholders

6.
To set up actions relating to customs and
taxation involving third countries and external experts

7.
To support the identification and sharing of best practices

8.
To set up expert teams to perform specific
operational tasks together

II. European Information Systems and
their Union components

Referred to in Article 6(d)

1.
The common European Information Systems are the
following:

(a)
the common communications network/common systems
interface (CCN/CSI), CCN mail3, the CSI bridge, the
http bridge, CCN LDAP and related tools, CCN web portal, CCN monitoring;

(b)
supporting systems, in particular the application
configuration tool for CCN, tool for automated supply management (TASMAN), the
activity reporting tool (ART2), Taxud electronic management of project online
(TEMPO), service management tool (SMT), the user management system (UM), the
BPM system, the availability dashboard and AvDB, IT service management portal,
directory and user access management,

(c)
Customs and Tax programme' information and
communication space (PICS)

2.
The European Information Systems specific for
customs are the following

(a)
the customs movement systems, in particular the
(New) Computerised Transit System ((N)CTS), NCTS TIR for Russia, the Export
Control System (ECS) and the Import Control system (ICS). The following
applications/components are supporting these systems: the system to exchange
data with third countries (SPEED bridge), the SPEED Edifact Converter Node
(SPEED-ECN), the Standard SPEED Test Application (SSTA), the Standard Transit
Test Application (STTA), the Transit Test Application (TTA), the Central
Services/Reference Data (CSRD), the Central Services/Management Information
System (CS/MIS);

(b)
the Community Risk Management System (CRMS)
covering the Risk Information Forms (RIF) and the Common Profiles CPCA
functional domains;

(c)
the Economic Operators System (EOS) covering the
Economic Operator Registration and Identification (EORI), the Authorised
Economic Operators (AEO), the Regular Shipping Services (RSS) and the mutual
recognition with partner countries functional domains. The Generic Web Service
is a support component for this system;

(d)
the tariff system (TARIC3) which is a reference
data system for other applications such as the quota management system
(QUOTA2),, the surveillance management and monitoring system (SURV2), the
European Binding Tariff Information system (EBTI3) the European Customs
Inventory of Chemical Substances (ECICS2). The Combined Nomenclature (CN) and
the suspensions (Suspensions) applications are managing legal information with
a direct link to the tariff system;

(e)
the applications for control purposes, in
particular the Specimen Management System (SMS) and the Information System for
Processing Procedures (ISPP);

(f)
the anti-COunterfeit and anti-PIracy System
(COPIS);

(g)
the Data Dissemination System (DDS2) managing all
information which is accessible to the public via Internet.

(h)
the Anti-Fraud Information System (AFIS)

3.
The European Information Systems specific for
taxation are the following:

(a)
the VAT related systems, in particular, the VAT
information exchange system (VIES) and the VAT refund, including the VIES
initial application, the VIES monitoring tool, the Taxation statistical system,
VIES-on-the-web, VIES-on-the-web configuration tool, the VIES and VAT refund
test tools, the VAT number algorithms, the VAT exchange of eforms, VAT on
e-Services (VoeS); VoeS test tool, VAT eforms test tool

(b)
recovery related systems, in particular eforms for
recovery of claims, eforms for uniform instrument permitting enforcement (UIPE)
and for uniform notification form (UNF)

(c)
direct taxation related systems, in particular
taxation on savings system, taxation on saving test tool, eforms for direct
taxation, tax identification number TIN-on-the-web, the exchanges related to
the Article 8 of Directive 2011/16/EU and associated test tools

(d)
other taxation related systems, in particular, the
taxes in Europe database (TEDB), CCN/Mail to OECD countries

(e)
the excise systems, in particular the system for
exchange of excise data (SEED), the Excise Movement and Control System (EMCS),
MVS eforms, test application (TA)

(f)
other central systems, in particular, the member
states communication and information application (MSCIA), the self-service
testing system (SSTS), taxation related statistics system, the central
application for web forms, the central services / management information system
for Excise (CS/MISE)

4.
The Union components of the European information
systems are:

(a)
IT assets such as the hardware, the software and
the network connections of the systems including the associated data
infrastructure;

(b)
IT services necessary to support the development,
the maintenance, the improvement and the operation of the systems;

(c)
and any other elements which, for reasons of
efficiency, security and rationalisation, are identified by the Commission as
common to participating countries.

LEGISLATIVE FINANCIAL STATEMENT

1.
FRAMEWORK OF THE PROPOSAL/INITIATIVE

1.1.    Title of the proposal/initiative

1.2.    Policy
area(s) concerned in the ABM/ABB structure

1.3.    Nature
of the proposal/initiative

1.4.    Objective(s)

1.5.    Grounds
for the proposal/initiative

1.6.    Duration
and financial impact

1.7.    Management
method(s) envisaged

2.
MANAGEMENT MEASURES

2.1.    Monitoring
and reporting rules

2.2.    Management
and control system

2.3.    Measures
to prevent fraud and irregularities

3.
ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

3.1.    Heading(s)
of the multiannual financial framework and expenditure budget line(s) affected

3.2.    Estimated
impact on expenditure

3.2.1. Summary of estimated impact on expenditure

3.2.2. Estimated
impact on operational appropriations

3.2.3. Estimated
impact on appropriations of an administrative nature

3.2.4. Compatibility
with the current multiannual financial framework

3.2.5. Third-party
participation in financing

3.3.    Estimated impact on revenue

LEGISLATIVE FINANCIAL STATEMENT FOR PROPOSALS

1.
FRAMEWORK OF THE PROPOSAL/INITIATIVE
1.1.
Title of the proposal/initiative

Proposal for a Regulation
of the European Parliament and of the Council establishing an action programme
for customs and taxation in the European Union for the period 2014-2020 (FISCUS)
and repealing Decisions N°1482/2007/EC and N°624/2007/EC.

1.2.
Policy area(s) concerned in the ABM/ABB
structure[34]

1404 Customs Policy

1405 Taxation Policy

1.3.
Nature of the proposal/initiative

 ̈ The
proposal/initiative relates to a new action

 ̈ The
proposal/initiative relates to a new action following a pilot
project/preparatory action[35]

X The
proposal/initiative relates to the extension of an existing action

 ̈ The
proposal/initiative relates to an action redirected towards a new action

1.4.
Objectives
1.4.1.
The Commission's multiannual strategic
objective(s) targeted by the proposal/initiative

The proposed FISCUS
programme will contribute to the Europe 2020 Strategy for smart,
sustainable and inclusive growth[36]
by (1) strengthening the functioning of the Single Market, (2) providing a
framework to support activities enhancing productivity of the public sector and
(3) pushing technical progress and innovation in national and European customs
and tax administrations.

Taxation part

The programme will in
particular support the flagship initiative on the digital agenda for
Europe[37],
the flagship initiative on the Innovation Union[38] and the flagship initiative on
an industrial policy for the globalisation era[39].
It will support the national tax administrations to become fully-fledged e-tax
administrations and equally contributing to the reduction of the administrative
burden on taxpayers, by making the implementation of Union tax legislation
smarter.

The programme will
also support the Single Market Act[40]
in particular some key areas for taxation policy emphasised in this legal act
and those concerning diminishing the burden on taxpayers. The upcoming policy
initiatives which the programme will support and help implement, such as the
proposed Energy Tax Directive, new VAT strategy, and Common Consolidated
Corporate Tax Base for companies and those concerning the removal of
cross-border tax obstacles for citizens, will, when adopted, contribute substantially
to achieving objectives of the Single Market Act.

Customs Part

The Customs Union is
fundamental to the Internal Market. The borderless Internal Market for
goods requires goods originating from third countries to comply with
formalities and other requirements upon entry or when released into
circulation; after this, they can move around freely within the external
borders of the EU. Customs supports the development of fair, competitive
Internal Market conditions by uniform application of common rules and
regulations. It supports growth and innovation within the Internal Market for
instance by enforcing intellectual property rights (IPR) at the border (see
also the European anti-counterfeiting and anti-piracy plan[41] and the new strategy
for IPR in the Single Market as recently adopted by the Commission).
Responses to a recent public consultation[42]
on the future of the Internal Market suggest high expectations among industry
federations regarding further EU action against counterfeiting and piracy.
Customs has a fundamental role in effective enforcement of IPR, as confirmed by
statistics on IPR customs activities.[43]In
addition the programme will support a large variety of policy measures in the
framework of the Customs Union. For instance, the protection of the financial
interests of the EU and Member States through the collection of
duties and various fees and taxes on trade, and collaborative efforts to fight
fraud. In 2010, approximately 12.3 % (15.7 billion euro) of the EU budget
corresponded to traditional own resources.[44]
The Customs Union is the operational arm of EU Trade Policy,
implementing bilateral and multilateral trade agreements, collecting duties,
and applying trade measures (such as rules of origin), embargoes and other
restrictions. The discussion paper Trade, Growth and World Affairs: Trade
policy as a core component of the EU's 2020 Strategy[45] published in November 2010,
highlights the agenda for international customs cooperation in the framework of
bilateral agreements and in the World Customs Organization. It emphasises that
efficient customs procedures reduce compliance costs for traders, facilitate
legitimate trade, and help to address rising security, safety and IPR risks.

The role of the
Customs Union in contributing to internal security of the EU has become
increasingly prominent, and will continue to grow, as reflected in the action
plan for the Internal Security Strategy[46]
and in the Stockholm Programme Action Plan.[47] Furthermore, customs action
and cooperation between customs, police and other enforcement authorities
contribute to global security objectives such as the fight against money
laundering, organised cross-border crime, and terrorism.

1.4.2.
Specific objective(s) and ABM/ABB activity(ies)
concerned

Specific objectives and ABM/ABB activity(ies) concerned

The ABB activities concerned are Customs Policy (1404) and Taxation
Policy (1405).The specific objectives of the programme will be the following:

(1)
to support the preparation, coherent application
and effective implementation of Union law in the fields of customs and taxation

(2)
to contribute to the efficient functioning of
customs and tax authorities by improving their administrative capacity and
reducing the administrative burden

(3)
to prevent fraud and tax evasion and to enhance
competitiveness, safety and security by enhancing cooperation with
international organisations, other governmental authorities, third countries,
economic operators and their organisations

(4)
to strengthen the competitiveness of European
businesses through the facilitation of trade and the reduction of compliance
costs

(5)
to protect the financial and economic interests
of the European Union and its Member States through the fight against fraud and
tax evasion

(6)
to support customs in protecting citizens and
the economy in terms of safety and security, and in protecting the environment

1.4.3.
Expected result(s) and impact

Specify the effects
which the proposal/initiative should have on the beneficiaries/groups targeted.

From Customs point of view, Member States, by transferring their
powers to the EU – the Customs Union being an exclusive competence of the EU – ipso
facto agreed that actions in the customs area will be better applied at EU
level. However, the EU legal framework in itself does not ensure proper
functioning of the Customs Union. Flanking support measures as provided by the
Customs Programme are required to ensure that EU customs
legislation is applied in a convergent and harmonised way, so that treatment of
traders, fraud prevention, and legal obligations do not vary.

Moreover, many of the activities in the
customs area are of a cross-border nature, involving and affecting all 27
Member States and therefore they cannot be effectively and efficiently
delivered by individual Member States. EU action is needed to underpin the
European dimension of customs work, to avoid Internal Market distortions and to
support the effective protection of the EU borders.

Solidarity and responsibility sharing are the principles underlying
funding for the Customs Union. Situations where the need for effective measures
exceeds the ability of particular Member States to supply them are detrimental
to the union as a whole. EU intervention is required to preserve the EU
public good where EU demand (e.g. for security) cannot be adequately
serviced by the supply of particular Member States. In such cases, EU action
translates into jointly funding technical capacity building to
meet the demand for effective control despite the limited supply capability of
specific Member States.

The proposed programme aims to improve cooperation between tax
administrations and provide mechanisms and means for improving such cooperation
as well as the necessary funding to achieve these objectives. As such the
programme will not, when implemented by the Commission, result in a further
harmonisation of national tax systems but it will allow the reduction of negative
effects related to the co-existence of 27 different tax systems, such as fraud,
distortions of competition, administrative burden for administrations and
businesses, tax shopping, etc. The proposed measure is therefore a clear
Internal Market support measure as it will allow the improvement of the
functioning of the various tax systems within the Internal Market

Whereas it is the Member States' responsibility to manage the
operation of national tax systems, it is clear from the challenges identified in
the impact assessment of the proposal that increased administrative cooperation
between tax authorities –to an even greater degree than is currently the case -
is necessary. Cooperation across the EU enables tax
authorities to develop synergies, avoid duplication and exchange good practice
in all fields related to taxation such as business engineering, IT,
international cooperation, etc. The support to taxation cooperation by the
current Fiscalis 2013 programme has demonstrated its merits, and this
experience will be very valuable to respond to the future challenges in
particular the outdated technological architecture, difficulties in working
together on an operational level with regard to specific tasks, unequal
financial means to support the activities of tax authorities and difficulties
in establishing structural collaboration with the main stakeholders of the tax
authorities.

1.4.4.
Indicators of results and impact

Specify the
indicators for monitoring implementation of the proposal/initiative.

Monitoring of the programme's activities will be carried out in
order to ensure that the rules and procedures for the implementation of the
programme have been applied properly and to verify if the programme is
successful in achieving its objectives. A monitoring framework will be put in
place, including: an intervention logic, a
comprehensive set of indicators, measurement methods, a data collection plan, a
clear and structured reporting and monitoring process and midterm and final
evaluations.

The performance of the programme will be measured using a coherent
set of performance, impact, result and output indicators linked to the general,
specific and operational objectives of the programme and building the link with
the Commission Management Plan. The detailed list of impact, result and output
indicators is available in the Impact Assessments of the relevant programmes. DG
TAXUD has identified targets for some operational objectives of the programme.
For some others though this is not yet feasible at this point in time. The targets
of those operational objectives will be identified before the start of the 2020
programme by DG TAXUD and presented to the Programme Committee for endorsement
in the framework of the Annual Work Programme procedure.

The general objective will be measured as the evolution of
the view of all relevant programme stakeholders regarding the contribution of
the programme towards the support for the functioning of the Customs Union and the
strengthening of the internal market by improving the operation of the taxation
systems and will have as target that the view of stakeholders regarding
the contribution of the programme towards this objective should stabilise or
evolve positively

The indicators that will measure the specific objectives are
indicated in Article 5(2) of the proposal.

1.5.
Grounds for the proposal/initiative
1.5.1.
Requirement(s) to be met in the short or long
term

The proposal contributes to the Europe 2020 strategy and the
implementation of various other Union legislations as elaborated under chapter
1.4.1

1.5.2.
Added value of EU involvement

It is more beneficial to initiate actions at the Union level than at
the level of 27 Member States as described in detail in chapter 3.2 of the
explanatory memorandum.

1.5.3.
Lessons learned from similar experiences in the
past

From an economic point of view, action at EU level is much more
efficient. The backbone of the customs and taxation cooperation is a highly
secured dedicated communication network which is operational since the first
customs and tax cooperation programmes in the early 90's. It interconnects
national customs and tax administrations in approximately 5.000 connection
points. This common IT network ensures that every national
administration only needs to connect once to this common infrastructure to be
able to exchange any kind of information. If such an infrastructure were not
available Member States would have to link 26 times to the national systems of
each of the other Member States.

Other cornerstones of the programme are activities that bring customs
respectively taxation officials together with the purpose of exchanging best
practices, to learn from each other, analyse a problem or draft a guide, for
instance. If Member States would have had to learn from each other by
developing their own activities outside the programme umbrella, they would all
have developed their own set of tools and ways of work. Synergies between
activities would have been lost and common activities would not have been
implemented systematically at the level of 27 Member States. It is much more
efficient to have, with the support of the programme, the Commission acting as activity
broker between the participating countries.

Another important value added is one of an intangible nature. The
programme has been instrumental in creating a sense of common interest,
stimulating mutual trust and generating a cooperation spirit between
Member States and Member States and the Commission in the area of customs and
taxation.

1.5.4.
Coherence and possible synergy with other
relevant instruments

One of the policy scenarios worked out for the customs area foresees
to financially support Member States' customs authorities for acquiring
equipment and build up their technical capacity. Rather than working out a
financing scheme for this purpose under the FISCUS programme, Member States may
call on other programmes, including Regional Structural Funds for supporting
this need.

The Midterm evaluation of the DG HOME programmes on Prevention of
and Fight against Crime (ISEC) and Prevention, Preparedness and Consequence
Management of Terrorism & other Security Related Risks (CIPS)[48] considers the Customs and
Fiscalis programme management model "offers the most promising prospects
for improving the management of ISEC/CIPS as it allows to promptly and flexibly
respond to operational needs".[49]

The backbone for trans-European IT systems is the CCN/CSI network,
also being used by OLAF for the exchange (and storage) of information on
irregularities and fraud. For this purpose both DGs benefit from economies of
scale.

1.6.
Duration and financial impact

X Proposal/initiative of limited
duration

–
 ̈  Proposal/initiative in effect from 01/01/2014 to 31/12/2020

–
 ̈  Financial impact 2014 to 2023 (from 2021 to 2023 only for payment
appropriations

 ̈ Proposal/initiative of unlimited
duration

–
Implementation with a start-up period from YYYY
to YYYY,

–
followed by full-scale operation.

1.7.
Management mode(s) envisaged[50]

X Centralised direct management by the
Commission

 ̈ Centralised indirect management with the delegation of implementation tasks to:

 ̈         executive agencies

 ̈         bodies set up by the Communities[51]

 ̈         national public-sector bodies/bodies with public-service
mission

 ̈         persons entrusted with the implementation of specific
actions pursuant to Title V of the Treaty on European Union and identified in
the relevant basic act within the meaning of Article 49 of the Financial
Regulation

 ̈ Shared management with the Member States

 ̈ Decentralised management with third countries

 ̈ Joint management with international organisations (to be specified)

If more than one
management mode is indicated, please provide details in the
"Comments" section.

Comments

/

2.
MANAGEMENT MEASURES
2.1.
Monitoring and reporting rules

Specify frequency
and conditions.

Monitoring of the programme's activities
will be carried out in order to ensure that the rules and procedures for the
implementation of the programme have been applied properly (audit function. The
proposals for joint action activities are monitored on a permanent basis
through an online database, Activity Reporting Tool (ART), which contains the
proposals and their corresponding activities. The same tool allows the
beneficiaries of the grants issued under the programme, namely the Member
States customs/tax administrations, to report online the expenses financed from
the grant to participate in the joint action activities. Annually Member States
have to sent a financial report to the Commission which using the Activity
Reporting Tool.

For the IT and Training Capacity Building activities that are
financed through procurement, the standard reporting and monitoring rules
apply.

The programme will be evaluated twice. The results of the midterm evaluation
will be available by mid-2018 and those of the final evaluation of the
programme towards the end of 2021. Member States, as main beneficiaries of the
programme will do an important part of the data collection either by providing
information at the level of the individual tools (mainly through ART) or on the
wider impact of the programme (either by participating in perception measuring
exercises or through the issuing of reports).

Up to now, evaluation exercises of the existing programmes, predominantly
addressed primary stakeholders of the programme, namely customs/tax authorities
and their experts which are the target audience of the programme. Considering
the importance of consulting also stakeholders that are external to the
programme (i.e. economic operators) on the impacts the programme has on them
and to what extent they benefit for instance from better cooperation between customs/tax
administrations, this dimension of indirect impacts will be included in future
programme evaluations.

2.2.
Management and control system
2.2.1.
Risk(s) identified

The potential risks for the implementation of the programme are
related to:

–
Implementation of the grant agreement signed
with the consortium of the Member States and Candidate Countries. The level of
risk is considered low, since the beneficiaries are public administrations of
the participating countries

Implementation of the procurement contracts concluded under the
umbrella of the programme. Examples of risks would be :

–
Member States declare expenses for an activity
that is not approved under the programme

–
Member States declare twice the same expenses

–
Non-respect of procurement rules

–
Payment of an invoice for a non-existing
deliverable

2.2.2.
Control method(s) envisaged

The main elements of the control strategy applied are:

For procurement contracts:

The control procedures for procurement defined in the Financial
Regulation are applied. Any procurement contract is
established following the established procedure of verification by the services
of the Commission for payment, taking into account contractual obligations and
sound financial and general management. Anti-fraud measures (controls, reports,
etc.) are foreseen in all contracts concluded between the Commission and the
beneficiaries. Detailed terms of reference are drafted and form the basis of
each specific contract. The acceptance process follows strictly the TAXUD TEMPO
methodology: deliverables are reviewed, amended if necessary and finally
explicitly accepted (or rejected). No invoice can be paid without an
"acceptance letter".

Technical verification for procurement

DG TAXUD performs controls of deliverables and supervises operations
and services carried out by contractors. It also conducts quality and security
audits of their contractors on a regular basis. Quality audits verify the
compliance of the contractors' actual processes against the rules and
procedures defined in their quality plans. Security audits focus on the
specific processes, procedures and set-up.

For grants

The grant agreement signed by the beneficiaries of the programme (customs
administrations in Member States and Candidate Countries) defines conditions
applying to the financing of activities resorting under the grant, including a
chapter on control methods. All participating administrations engaged
themselves to respect Commission's financial and administrative rules on
expenses.

The activities for which grant beneficiaries can finance
participation from the grants are identified in an online database (ART –
Activity Reporting Tool). The Member States report their spending in the same
database which has a number of built in controls to reduce errors. For
instance, Member States can only report expenses for activities to which they
were invited and can only do so once. In addition to the controls that are
built-in in the reporting system, DG TAXUD performs paper controls and on the
spot checks on a sample basis. This control strategy allows keeping the
administrative burden on the grant beneficiaries as limited as possible and
proportionate to the budget allocated and risks perceived.

In addition to the above controls, DG TAXUD performs the traditional
financial controls:

Ex-ante verification of commitments:

All commitments in DG TAXUD are verified by the head of the HR and
Finances Unit. Consequently, 100% of the committed amounts are covered by the
ex-ante verification. This procedure gives a high level of assurance as to the
legality and regularity of transactions.

Ex-ante verification of payments:

At least one payment (from all categories of expenditures) per week
is randomly selected for ex-ante verification performed by the head of the HR
and Finances Unit. There is no target concerning the coverage, as the purpose
of this verification is to check payments "randomly" in order to
verify that all payments were prepared in line with the requirements. The
remaining payments are processed according to the rules in force on a daily
basis.

Declarations of the AOSD:

All the Authorising Officers by Sub-Delegations sign declarations
supporting the Annual Activity Report for the year concerned. These
declarations cover the operations under the programme. The AOSD declare that the
operations connected with the implementation of the budget have been executed
in accordance with the principles of the sound financial management, that the
management and control systems in place provided satisfactory assurance
concerning the legality and regularity of the transactions and that the risks
associated to these operations have been properly identified, reported and that
mitigating actions have been implemented.

The controls established enable DG TAXUD to have sufficient
assurance of the quality and regularity of the expenditure and reduce the risk
of non-compliance. The depth of the assessment reaches level three[52] for Joint Actions and level
four[53]
for the procurement contracts. The above control strategy measures reduce the
potential risks virtually to zero and it reaches all beneficiaries Any
additional measures for further risk reduction would result in disproportionate
high costs and are therefore not envisaged. DG TAXUD considers there are no
variations between the present and current programme from control point of view
and will apply the same control strategy for the 2020 programme. The costs
entailed to implement the above control strategy are limited to 2,60 % of the
budget and is expected to remain at the same ratio.

The programme control strategy is deemed efficient to limit the risk
of non-compliance to virtually zero and proportionate with the risks entailed.

2.3.
Measures to prevent fraud and irregularities

Specify existing or
envisaged prevention and protection measures.

In addition to the application of all regulatory control mechanisms,
the DG will devise an anti-fraud strategy in line with the Commission's new
anti-fraud strategy (CAFS) adopted on 24 June 2011 in order to ensure inter
alia that its internal anti-fraud related controls are fully aligned with
the CAFS and that its fraud risk management approach is geared to identify
fraud risk areas and adequate responses. Where necessary, networking groups and
adequate IT tools dedicated to analysing fraud cases related to the FISCUS Programme
will be set up.

3.
ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE
3.1.
Heading(s) of the multiannual financial
framework and expenditure budget line(s) affected

· Existing expenditure budget lines

In order of
multiannual financial framework headings and budget lines.

Heading of multiannual financial framework || Budget line || Type of expenditure || Contribution

Number [Description........................................] || Diff./non-diff. ([54]) || from EFTA[55] countries || from candidate countries[56] || from third countries || within the meaning of Article 18(1)(aa) of the Financial Regulation

|| || || || || ||

· New budget lines requested

In order of multiannual financial framework
headings and budget lines.

Heading of multiannual financial framework || Budget line || Type of expenditure || Contribution

Number [Heading............................................] || Diff./non-diff. || from EFTA countries || from candidate countries || from third countries || within the meaning of Article 18(1)(aa) of the Financial Regulation

1 || 14.04.03 – FISCUS (Customs Sector) || Diff. || NO || YES || NO || NO

1 || 14.04.04 – FISCUS (Taxation Sector) || Diff. || NO || YES || NO || NO

1 || 14.01.04.05 FISCUS – Expenditure on administrative management || Non-diff || NO || NO || NO || NO

3.2.
Estimated impact on expenditure[57]
3.2.1.
Summary of estimated impact on expenditure

The costs related to the possible introduction
of a new European IT system, should this be required, implementing the proposal
on the Financial Transaction Tax (FTT), are not included in the budget of the FISCUS
programme, considering the early stage of the process for the FTT proposal.

EUR million (to 3 decimal places)

Heading of multiannual financial framework: || 1 || Smart and Inclusive Growth

DG: TAXUD || || || Year 2014 || Year 2015 || Year 2016 || Year 2017 || Year 2018 || Year 2019 || Year 2020 || Year 2021-2023 || TOTAL

Ÿ Operational appropriations || ||

14.0403 || Commitments || (1) || 71.300 || 73.400 || 75.500 || 77.600 || 79.800 || 82.100 || 84.300 || || 544.000

Payments || (2) || 14.260 || 46.765 || 62.390 || 67.740 || 69.650 || 71.625 || 73.645 || 137.925 || 544.000

14.0404 || Commitments || (1a) || 33.100 || 33.100 || 33.100 || 33.200 || 33.200 || 33.200 || 33.300 || || 232.200

Payments || (2a) || 9.268 || 24.163 || 27.473 || 29.818 || 29.863 || 29.873 || 29.908 || 51.834 || 232.200

Appropriations of an administrative nature financed  from the envelope for specific programmes[58] || ||

14.010405 || || (3) || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || || 1.400

TOTAL appropriations for DG TAXUD || Commitments || =1+1(a)+3 || 104.600 || 106.700 || 108.800 || 111.000 || 113.200 || 115.500 || 117.800 || || 777.600

Payments || =2+2(a)+3 || 23.728 || 71.128 || 90.063 || 97.758 || 99.713 || 101.698 || 103.753 || 189.759 || 777.600

Ÿ TOTAL operational appropriations || Commitments || (4) || 104.400 || 106.500 || 108.600 || 110.800 || 113.000 || 115.300 || 117.600 || || 776.200

Payments || (5) || 23.528 || 70.928 || 89.863 || 97.558 || 99.513 || 101.498 || 103.553 || 189.759 || 776.200

Ÿ TOTAL appropriations of an administrative nature financed from the envelope for specific programmes || (6) || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || 0.200 || || 1.400

TOTAL appropriations under HEADING 1 of the multiannual financial framework || Commitments || =4+ 6 || 104.600 || 106.700 || 108.800 || 111.000 || 113.200 || 115.500 || 117.800 || || 777.600

Payments || =5+ 6 || 23.728 || 71.128 || 90.063 || 97.758 || 99.713 || 101.698 || 103.753 || 189.759 || 777.600

Heading of multiannual financial framework: || 5 || " Administrative expenditure "

EUR million (to 3 decimal places)

|| || || Year 2014 || Year 2015 || Year 2016 || Year 2017 || Year 2018 || Year 2019 || Year 2020 || TOTAL

DG: TAXUD ||

Ÿ Human resources || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 105.483

Ÿ Other administrative expenditure || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 4.270

TOTAL DG TAXUD || || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 109.753

TOTAL appropriations under HEADING 5 of the multiannual financial framework || (Total commitments = Total payments) || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 109.753

|| || || Year 2014 || Year 2015 || Year 2016 || Year 2017 || Year 2018 || Year 2019 || Year 2020 || Year 2021-2023 || TOTAL

TOTAL appropriations under HEADINGS 1 to 5 of the multiannual financial framework || Commitments || 120.279 || 122.379 || 124.479 || 126.679 || 128.879 || 131.179 || 133.479 || || 887.353

Payments || 39.407 || 86.807 || 105.742 || 113.437 || 115.392 || 117.377 || 119.432 || 189.759 || 887.353

Estimated
impact on operational appropriations

–
X  The proposal/initiative requires the use of
operational appropriations, as explained below:

Commitment appropriations in EUR million (to 3 decimal
places)

Indicate objectives and outputs ò || || || 2014 || 2015 || 2016 || 2017 ||  2018 || 2019 || 2020 || TOTAL

OUTPUTS

Type of output[59] || Average cost of the output || Number of outputs || Cost || Number of outputs || Cost || Number of outputs || Cost || Number of outputs || Cost || Number of outputs || Cost || Number of outputs || Cost || Number of outputs || Cost || Total number of outputs || Total cost

General Objective: To strengthen the internal market by improving the customs union and the taxation systems through cooperation between participating countries, their customs and tax administrations, their officials and external experts

Customs Sector || || || || || || || || || || || || || || || ||

IT Capacity Building || Number of IT Contracts || || Around 30 || 57.000 || || 59.100 || || 61.200 || || 63.300 || || 65.500 || || 67.800 || || 70.000 || || 443.900

Joint Actions || Number of events organised || || Around 450 || 11.500 || || 11.500 || || 11.500 || || 11.500 || || 11.500 || || 11.500 || || 11.500 || || 80.500

Human Capacity Building || Number of trainings || || Tbc || 2.800 || || 2.800 || || 2.800 || || 2.800 || || 2.800 || || 2.800 || || 2.800 || || 19.600

Sub-total for the Customs sector || || 71.300 || || 73.400 || || 75.500 || || 77.600 || || 79.800 || || 82.100 || || 84.300 || || 544.000

Taxation Sector || || || || || || || || || || || || || || || ||

IT Capacity Building || Number of IT contracts || || Around 20 || 23.300 || || 23.300 || || 23.300 || || 23.300 || || 23.300 || || 23.300 || || 23.300 || || 163.100

Joint Actions || Number of events organised || || Around 260 || 8.500 || || 8.500 || || 8.500 || || 8.500 || || 8.500 || || 8.500 || || 8.500 || || 59.500

Human Capacity Building || Number of trainings || || Tbc || 1.300 || || 1.300 || || 1.300 || || 1.400 || || 1.400 || || 1.400 || || 1500 || || 9.600

Subtotal for the taxation sector || || 33.100 || || 33.100 || || 33.100 || || 33.200 || || 33.200 || || 33.200 || || 33.300 || || 232.200

TOTAL COST || || || || 104.400 || || 106.500 || || 108.600 || || 110.800 || || 113.000 || || 115.300 || || 117.600 || || 776.200

3.2.2.
Estimated impact on appropriations of an
administrative nature
3.2.2.1.
Summary

–
X  The proposal/initiative requires the use of
administrative appropriations, as explained below:

EUR million (to 3
decimal places)

|| Year 2014 || Year 2015 || Year 2016 || Year 2017 || Year 2018 || Year 2019 || Year 2020 || TOTAL

HEADING 5 of the multiannual financial framework || || || || || || || ||

Human resources || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 15.069 || 105.483

Other administrative expenditure || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 0.610 || 4.270

Subtotal HEADING 5 of the multiannual financial framework || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 109.753

Outside HEADING 5[60] of the multiannual financial framework || || || || || || || ||

Human resources || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

Other expenditure of an administrative nature || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

Subtotal outside HEADING 5 of the multiannual financial framework || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

TOTAL || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 15.679 || 109.753

3.2.2.2.
 Estimated requirements of human resources

–
X  The proposal/initiative requires the use of
human resources, as explained below:

Estimate to be expressed in full amounts
(or at most to one decimal place)

|| Year 2014 || Year 2015 || Year 2016 || Year 2017 || Year 2018 || Year 2019 || Year 2020

Ÿ Establishment plan posts (officials and temporary agents)

14 01 01 01 (Headquarters and Commission’s Representation Offices) || 97 || 97 || 97 || 97 || 97 || 97 || 97

14 01 01 02 (Delegations) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

14 01 05 01 (Indirect research) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

10 01 05 01 (Direct research) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

Ÿ External personnel (in Full Time Equivalent unit: FTE)[61]

14 01 02 01 (CA, INT, TA, SNE from the "global envelope") || 26 || 26 || 26 || 26 || 26 || 26 || 26

14 01 02 02 (CA, INT, JED, LA and SNE in the delegations) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

14 01 04 05 [62] || - at Headquarters[63] || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

- in delegations || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

14 01 05 02 (CA, INT, SNE - Indirect research) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

10 01 05 02 (CA, INT, SNE - Direct research) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

Other budget lines (specify) || p.m. || p.m. || p.m. || p.m. || p.m. || p.m. || p.m.

TOTAL || 123 || 123 || 123 || 123 || 123 || 123 || 123

14 is the policy area or budget title
concerned.

The human resources required
will be met by staff from the DG who are already assigned to management of the action
and/or have been redeployed within the DG, together if necessary with any
additional allocation which may be granted to the managing DG under the annual
allocation procedure and in the light of budgetary constraints.

Description of
tasks to be carried out:

Officials and temporary agents || Programme management activities, stricto senso[64], and programme implementation activities such as studies, development, maintenance and operation of European IT systems

External personnel || Assistance to programme implementation activities such as studies, development, maintenance and operation of European IT systems

3.2.3.
Compatibility with the current multiannual
financial framework

–
X  Proposal/initiative is compatible the current
multiannual financial framework.

3.2.4.
Third-party contributions

–
The proposal/initiative does not provide for
co-financing by third parties

Estimated impact on revenue

–
X  Proposal/initiative has no financial impact
on revenue.

[1]               COM(2011)500 Final of 29 June 2011, A budget for
Europe 2020.

[2]               COM(2010) 2020 final of 3 March 2010: A strategy
for smart, sustainable and inclusive growth.

[3]               In 2010, approximately 12.3 % (15.7 billion
euro) of the EU budget was derived from traditional own resources. Directorate
General for Budget, Thematic Report on the customs control strategy in the
Member States — Control of traditional own resources, p3.

[4]               Fiscalis
2013 midterm evaluation: http://ec.europa.eu/taxation_customs/resources/documents/common/publications/studies/fiscalis2013_mid_term_report_en.pdf
Customs 2013 midterm evaluation: http://ec.europa.eu/taxation_customs/resources/documents/common/publications/studies/customs2013_mid_term_report_en.pdf

[5]               DELOITTE,
The future business architecture for the Customs Union and Cooperative Model in
the Taxation Area in Europe.

[6]               Minutes
of the 9th Fiscalis Committee meeting on 3 May 2011
Minutes of the 9th Customs Committee meeting on 11 April 2011.

[7]               Previously called Trans European IT Systems

[8]               OJ L 55, 28.2.2011, p 13.

[9]               The Evaluation Partnership,
Customs 2013 midterm evaluation, page 72 to 80
RAMBOLL, Fiscalis 2013 midterm evaluation, paragraphs 268-305.

[10]             COM(2010) 245 Final/2, A Digital Agenda for Europe.

[11]             COM(2010) 546 of 6 October 2010, European 2020
Flagship Initiative Innovation Union.

[12]             COM(2010) 682 of 23 November 2010, An Agenda for new
skills and jobs.

[13]             COM(2010) 614, European 2020 Flagship Initiative
Integrated Industrial Policy.

[14]             COM(2011) 0206 final.

[15]             COM (2011) 287, A Single Market for Intellectual
Property Rights – Boosting creativity and innovation to provide economic
growth, high quality jobs and first class products and services in Europe

[16]             COM (2010)612. Trade, Growth and World Affairs: Trade
policy as a core component of the EU's 2020 Strategy

[17]             COM(2010) 673 final, Brussels, 22.11.2010,
Communication from the Commission to the European Parliament and the Council — the EU Internal Security Strategy in Action: Five steps towards a
more secure Europe.

[18]             COM(2010) 171 final, Brussels, 20.4.2010, Communication From the Commission to the European Parliament, the
Council, the European Economic and Social Committee and the Committee of the
Regions: Delivering an area of freedom, security and justice for Europe's
citizens — Action Plan Implementing the Stockholm Programme.

[19]             OJ C , , p. .

[20]             COM(2011) 500 final Part I.

[21]             COM(2010) 2020.

[22]             O.J. L 347, 11.12.2006, p.1

[23]             OJ L 316, 31.10.1992, p. 21.

[24]             OJ L 176, 5.7.2011, p. 24.

[25]             (OJ L 283, 31.10.2003, p. 51.

[26]             OJ L 84, 31.3.2010, p. 1.

[27]             COM(2004)373

[28]             To be completed

[29]             COM(2010)700

[30]             OJ 28.2.2011
L 55-13

[31]             OJ L 330, 15.12.2007, p. 1

[32]             OJ L 154, 14.6.2007, p. 25

[33]             OJ L 292, 15.11.1996, p. 2.

[34]             ABM: Activity-Based Management – ABB: Activity-Based
Budgeting.

[35]             As referred to in Article 49(6)(a) or (b) of the
Financial Regulation.

[36]             COM(2010) 2020 final of 3 March 2010: A strategy
for smart, sustainable and inclusive growth.

[37]             COM(2010) 245 Final/2, A Digital Agenda for Europe.

[38]             COM(2010) 546 of 6 October 2010, European 2020
Flagship Initiative Innovation Union.

[39]             COM(2010) 614, European 2020 Flagship Initiative
Integrated Industrial Policy.

[40]             COM(2011) 0206 final.

[41]             Adopted by Council in 2008 (2008/C 253/01).

[42]             SEC(2011) 467 final, 13.4.2011. Overview of responses
to the public consultation on the Communication "Towards a Single Market
Act".

[43]             http://ec.europa.eu/taxation_customs/resources/documents/customs/customs_controls/counterfeit_piracy/
statistics/statistics_2010.pdf.

[44]             Directorate General for Budget, Thematic Report on the
customs control strategy in the Member States — Control of traditional own
resources, p3.

[45]             COM (2010)612, Trade, Growth and World Affairs, page 12.

[46]             COM(2010) 673 final, Brussels, 22.11.2010,
Communication from the Commission to the European Parliament and the Council — the EU Internal Security Strategy in Action: Five steps towards a
more secure Europe.

[47]             COM(2010) 171 final, Brussels, 20.4.2010, Communication From the Commission to the European Parliament, the
Council, the European Economic and Social Committee and the Committee of the
Regions: Delivering an area of freedom, security and justice for Europe's
citizens — Action Plan Implementing the Stockholm Programme.

[48]             COM(2005) 124 of 6 April 2005 has a budget of 745
million euro in the 2007-2013 financial framework.

[49]             Economisti
Associati, Evaluation of "Prevention and Fight against
Crime" and "Prevention, preparedness and consequence management of
terrorism and other security related risks" COM(1991) 341.Programs, 2 December 2010. p. 89.

[50]             Details of management modes and references to the
Financial Regulation may be found on the BudgWeb site: http://www.cc.cec/budg/man/budgmanag/budgmanag_en.html

[51]             As referred to in Article 185 of the Financial
Regulation.

[52]             Depth of controls – level three: control with reference
to fully independent corroborative information

[53]             Depth of controls – level four: control with reference
to and including access to the underlying documentation that is available at
the stage of the process in question.

[54]             Diff. = Differentiated appropriations / Non-diff. =
Non-Differentiated Appropriations

[55]             EFTA: European Free Trade Association.

[56]             Candidate countries and, where applicable, potential
candidate countries from the Western Balkans.

[57]             Expenditure is expressed in current prices.

[58]             Technical and/or administrative assistance and
expenditure in support of the implementation of EU programmes and/or actions
(former "BA" lines), indirect research, direct research.

[59]             Outputs are products and services to be supplied (e.g.:
number of student exchanges financed, number of km of roads built, etc.).

[60]             Technical and/or administrative assistance and
expenditure in support of the implementation of EU programmes and/or actions
(former "BA" lines), indirect research, direct research.

[61]             CA= Contract Agent; INT= agency staff ("Intérimaire");
JED= "Jeune Expert en Délégation" (Young Experts in
Delegations); LA= Local Agent; SNE= Seconded National Expert;

[62]             Under
the ceiling for external personnel from operational
appropriations (former "BA" lines).

[63]             Essentially for Structural Funds, European Agricultural
Fund for Rural Development (EAFRD) and European Fisheries Fund (EFF).

[64]             The number of posts involved in programme management
activities strictu senso is limited to 18.