COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS

I. INTRODUCTION

Recent terrorist attacks have shown a recurrent targeting of public spaces, exploiting the intrinsic vulnerabilities of these so-called "soft targets" that result from their open nature and public character. This concerned pedestrian precincts, tourist sites, transport hubs, shopping malls, places of worship, outdoor markets, concert halls and city squares, as seen in attacks in, for example, Barcelona, Berlin, Brussels, London, Manchester, Nice and Stockholm. Besides more complex "high intensity" attacks combining explosives and firearms, Europe has also been hit by a growing number of "low tech" attacks against public spaces carried out with everyday items such as a vehicle for ramming or a knife for stabbing. The targets are often chosen with the intent to causing mass casualties. Threat assessments by Europol and the EU Intelligence and Situation Centre (INTCEN) confirm this focus in target selection, which is also openly incited in terrorist publications on the internet.

Protecting public spaces poses particular challenges for Member States. This is due to the broad variety of public places that have been or could be targeted, their different characteristics ranging from fully open spaces to areas with some form of protection, the variety of actors involved in the protection of such sites, the risk of mass casualties and, importantly, the imperative to strike a balance between improving security and preserving the open nature of public spaces, ensuring that citizens can continue their daily lives.

Member States are primarily responsible for the protection of public spaces, but the EU can and should do more to support these efforts. As announced in the letter of intent to the European Parliament and the Council Presidency and the accompanying Roadmap for a More United, Stronger and More Democratic Union, this Action Plan sets out measures to provide guidance and support to Member States at national, regional and local level in protecting public spaces. It is part of a wider package of anti-terrorism measures to be undertaken over the next sixteen months. While there can never be 'zero risk', these operational measures will support Member States in detecting threats, reducing the vulnerability of public spaces, mitigating the consequences of a terrorist attack and improving cooperation.

The support the EU can provide to the protection of public spaces is twofold. First, it can foster the exchange of best practice across borders through targeted funding (chapter II) as well as networks of practitioners and guidance material (chapter III), Second, the EU can involve a wide range of stakeholders both from the local level and the private sector in this work (chapter IV). Using a joined-up, network approach, this Action Plan establishes a number of fora for a more systematic and structured exchange of information and sharing of best practice to protect public spaces. Where relevant, the work on protecting public spaces will build on actions and lessons learned in areas such as the critical infrastructure protection or the preparedness against chemical, biological, radiological and nuclear security risks, ensuing synergies between these related areas.

II. EU FUNDING FOR THE PROTECTION OF PUBLIC SPACES

EU funding provides another way to support Member States in the protection of public spaces, drawing on expertise and best practice in other Member States and enhancing cooperation across borders. This can include, for example, measures to promote and support the development of innovative infrastructure to secure public spaces without changing their open character. To that end, the Commission is stepping up the availability of EU funding, both in the short- and medium-term.

To address immediate, short-term needs, together with this Action Plan, the Commission is launching today a call for project proposals through the Internal Security Fund (ISF) Police for a total amount of EUR 18.5 million. This funding will support transnational projects improving the protection of public spaces.

This EU funding can also supports the operational cooperation on the ground. To improve the cooperation between first responders in the aftermath of terrorist attacks, the EU will make funding available within this call for cooperation projects to enhance the coordination between law enforcement, civil protection and medical services in the acute phase after an attack.

This short-term funding will be complemented in 2018 with funding under Urban Innovative Actions (UIA) as part of the European Regional Development Fund. Ensuring the physical resistance of buildings, the physical protection of crowded places and promoting security by design can be eligible actions for funding. This could include measures to increase security and promote public safety through the design of public space, lighting and public awareness campaigns as part of urban regeneration measures. To explore the interest and potential ideas of cities to test innovative solutions for security challenges in public spaces, the Commission has launched on 15 September 2017 a request for expressions of interest into the Urban Innovative Actions. This will help the Commission shape the upcoming calls for proposals in this area. Building on that, in October 2018, the Commission will open a call with a total budget of up to EUR 100 million under Urban Innovative Actions where security will be a key topic.

It is important to increase the awareness of managing authorities, local authorities and beneficiaries responsible for managing these funds to the vulnerability of public spaces, as well as enhancing knowledge and the spread of good practices in promoting security by design. The Commission invites Member States, cities and regions to better integrate the protection of public spaces in European Regional Development Fund and Cohesion Fund infrastructure investments.

Urban planning and design can contribute to the protection of public spaces. The Pact of Amsterdam agreed upon by EU Minsters responsible for Urban Matters in 2016 established the Urban Agenda for the EU, an integrated and coordinated approach to deal with the urban dimension of EU and national policies and legislation. It currently has 12 priorities. In October 2017, the Commission will propose the theme of security in public spaces as a new partnership with Member States, focussing on better knowledge, better regulation and better financing. The Commission calls on Member States and local authorities to support this initiative.

As the threat to public spaces is evolving, we need a better understanding of trends, risks and possible mitigating measures. This requires a greater use of related research opportunities. The EU has so far funded 48 security research projects related to the protection of public spaces under the Seventh Framework Programme and Horizon 2020 for a total amount of EUR 195 million. Many of these projects are now delivering results that need to be disseminated and, where appropriate, followed by investments to translate them into practical actions. To support the take-up of research results related to the protection of public spaces, the Commission will establish an exchange between the Practitioners' Forum and the European Network of Law Enforcement Technology Services (ENLETS) as well as with the practitioners' network under Horizon 2020.

Further research is required to improve the capacity to detect explosives, firearms and other weapons or chemical, biological radiological and nuclear (CBRN) materials being brought into public spaces. Research should also examine the effectiveness of various mitigation measures and identify strategies to reduce vulnerability and enhance the resilience of various potential targets. Testing plays a particular role in this respect. Efforts will be made to tailor research projects under Horizon 2020 to address these needs.

Objective Action/Deliverable Deadline Support Member States' actions to protect public spaces with short-term funding. EUR 18.5 million available under the Internal Security Fund (ISF). This will include funding for cooperation projects to enhance the coordination between law enforcement, civil protection and medical services in the acute phase after an attack. Call for proposals launched October 2017. Provide more structural funding for the protection of public spaces. Provide funding under Urban Innovative Actions (UIA) as part of the European Regional Development Fund. Call for proposals by October 2018.

III. NETWORKS OF PRACTITIONERS AND EU GUIDANCE TO PROTECT PUBLIC SPACES

Member States have different approaches to and experience in the protection of public spaces. The EU can support them in addressing the growing challenges in the protection of public spaces by providing fora for the exchange related expertise and best practice. This should take place at all relevant levels – the policy level, the law enforcement practitioners' level and the more operational level of specialised law enforcement units dealing with the protection of public spaces. As announced in the Ninth Progress Report towards an effective and genuine Security Union, and as also pointed to by the Comprehensive Assessment of EU Security Policy, this exchange builds on a network approach to allow for a more structured sharing of best practice to draw lessons from past attacks, develop guidance and share innovative solutions to enhance the protection of public spaces.

At the policy level, the Commission has recently set up an EU Policy Group on Soft Target Protection to step up the cooperation and coordination between Member States. Bringing together national policy-makers, the Group will collect, exchange and disseminate best practices and advise the Commission on further actions on the protection of public spaces. The Group will steer the work in two work-streams: the Practitioners' Forum and the Operators' Forum (see chapter IV for the latter).