COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(93) 523 final - COD 474 
Brussels, 4 November 1993 
PROPOSAL FOR A 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 
adopting the "Youth for Europe HI" programme designed to promote 
the development of exchanges among young people and of 
youth activities in the Community 
"Youth for Europe" programme 
(presented by the Commission) 
SÏ:IMH 
PROPOSAL FOR A 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 
on the "Youth for Europe" programme 
List of contents 
Introduction 
I. Context and challenges 
II. Cooperation and subsidiarity 
III. Proposed guidelines for Community action 
IV. The proposal for a Decision and its Annexes 
Proposal for a Decision 
Annex 
Introduction 
1. Article 126 of the EC Treaty, as modified by the Treaty on European Union is designed 
to encourage the development of youth exchanges and of exchanges of socio-educational 
youth workers in order to contribute to the development of quality education. In this 
document the Commission accordingly puts forward a programme of Community actions 
in the context of youth. These actions, intended as informal education, are designed to 
secure in an appropriate teaching context the involvement of young people in the 
construction of Europe, to encourage their active participation in the extra-curricular 
field and to encourage the cooperation of Member States, and thus contribute to the 
education of the young citizen. They cannot be set within the same framework as those 
based on teaching and training structures because of the differences in terms of target 
public, objectives and national authorities responsible, and thus need a specific 
programme. 
2. The Commission's proposal is based on a series of very tangible factors emerging from 
the bilateral discussions organized by the Commission with each of the Member States 
and the Youth Forum, around the experience and evaluation of the first two phases of 
the "Youth for Europe" programme, around the experience gained through Priority 
Actions in the youth field and around the stances of the European Parliament on this 
subject. The Commission would thus like to acknowledge and give fresh impetus to the 
efforts of Member States to prepare young people for their future as citizens of the 
Community. 
3. The proposal on the third phase of the programme is designed to guarantee a better 
rationalization and thus a better cohesion between the different actions in the field of 
youth, until now scattered under different Community programmes or budgetary lines. 
The proposed approach is not just a pure and simple addition of these actions but 
represents a new logic of the programme. 
I. Context and challenges 
4. The adoption in 1988 by the EC Council of Ministers of the "Youth for Europe" 
programme to support the mobility of young people was the result of a series of 
initiatives in the youth field taken by the European Parliament and the Commission 
since 1972, and represented a first step in this context. 
5. A fresh step was taken in 1990 when the Commission submitted its memorandum 
entitled "Young people in the European Community" and established that "Community 
activity in the field of youth policy" or "youth work" would not only be useful, but 
would bring added European value to what is or can be achieved at Member State 
level"(1). In 1991, the European Parliament submitted its report entitled "Community 
policies and their impact on young people"(2) and a first formal meeting of Ministers 
responsible for youth matters was held under the Luxembourg presidency. 
6. The Member States themselves clearly confirmed their interest in establishing 
Community level cooperation on experimental work in the field of youth and in setting 
up measures to favour new actions with and by young people, by adopting in June 1991 
a Council Resolution on priority actions in the youth field. 
Lastly, at the end of that same year, the European Parliament introduced a budget line 
for implementing these Priority Actions while providing for activities of cooperation and 
mobility with young people from non-member countries. This budget item was renewed 
in 1993 and the European Parliament at the same time introduced a fresh budget heading 
entitled "Youth policy" (B3-101) for the Youth for Europe Programme and die Priority 
Actions in the youth field. 
7. Member States' approaches to youth matters differ considerably and have been followed 
up to varying extents, which is also true of the youth associations and organizations, 
which play an essential role in this sector. In order to understand this proposal for a 
Decision, it is thus important to appreciate the importance and the reason d'être of a 
consistent policy and initiative on youth at Community level. 
8. As a specific social group made up of individuals in a situation of expectancy and 
search and having to assert themselves in order to assume their rightful role in society, 
young people must accomplish certain tasks generally allocated to them in our societies: 
being trained, being educated, integrating into society and into what is known as the 
labour market, and becoming active citizens, all of which implies some extent of 
autonomy. 
9. A range of actions which fall into the category of what could be termed "youth policy" 
exists in all Member States. They are designed primarily to promote active citizenship, 
by which is meant the state of mind and the attitude which prompts young people to 
take responsibility for their own lives and make an active contribution to the creation 
and development of the fundamental principles of democracy, freedom and solidarity in 
the world in which they live and act. 
10. Actions targeted specifically at young people in the context of youth policy are set 
within the broader framework of education as such. Education, in this context, relates 
to all the types of learning and all the intellectual, moral and civic values which a young 
person must acquire to become an active responsible citizen in society today and in the 
future. 
(i) 
(2) COM(90) 469 final. 
Rapporteur: Mr L. Vecchi, May 1991 (A3-0142/91). 
11. These actions complement the more formal action framework of the education and 
raining structures, and are an excellent means of action in a society where increasingly 
precarious conditions of access to employment and the labour market, particularly for 
the young, generate two major dangers, viz. personal demotivation and socio-economic 
exclusion, and all the consequences of marginalization. This field of action should gain 
even more ground in the years ahead and contribute to the development of quality 
education, for not only does it make it possible to reach the young people who are 
finding it difficult to enter the more formal systems of education and training, but also 
because it gives all young people a chance to experiment with new forms of 
participation and particularly to obtain recognition for this activity. Action of this kind 
will have an impact on the measures adopted by the sectoral policies, particularly those 
taken in the field of education and linked to teaching, in that it favours and intensifies 
the development and fulfilment of personalities in the making and in that it helps them 
to better find their way in society. 
12. Moreover, against a background of constantly increasing pressure from migration, young 
people are the players and victims of racism and are vital components in avoiding a 
fresh upsurge in racist and xenophobic behaviour. The fight against racism and 
xenophobia thus constitutes substantial added value for EC action. 
13. Public and private action, both at the Community and at the national levels, centres on 
the efforts of associations in the broad sense, extra-curricular activities and initiatives 
by the young themselves outside the world of work, school, military service, etc., and 
the youth movements, are active examples of the democratic commitment of and with 
young people. 
14. As regards Community action in this field, these young people thus represent now and 
in the long term the new generation on which the future of Europe hinges. 
II. Cooperation and subsidiarity 
15. The new Maastricht Treaty clearly defines the responsibilities of the Member States. The 
role of the Community complements that of the Member States. This complementarity 
will mean greater cooperation with relevant national authorities and the youth 
organizations, the real "social partners" in this field. 
16. Increasing the participation of young people and creating points of integration, creativity 
and participation are first and foremost the responsibility of the Member States. The 
Community's role in the field of youth - a field characterized by comparative dispersion 
and weakness as regards structures - can in some cases take on special meaning by 
enabling certain sectors to reach the minimum development threshold for national 
authorities to subsequently take over. The implementation of a youth policy as defined 
in this document therefore implies a joint endeavour by the Member States and the 
Community institutions together. 
17. Moreover, die Community has an essential role to play when it comes to developing a 
sense of belonging to a community, to encouraging the participation of young people 
in Europe and transnationally, but also in making Community action more tangible in 
the immediate environment of young people. It should also be noted that the activities 
of young people generally tend to start off at the local level. For the Community, this 
implies an approach which combines the efforts of the players concerned at the national, 
regional and local levels. 
IOL Proposed guidelines for Community action 
18. The specific features of Community action in the field of youth are firstly that it starts 
with the young people themselves and not with the systems within which they live, and 
secondly its essentially experimental approach. The development and expansion of this 
type of action in the years ahead must hinge on die following fundamental principles 
which determine the pedagogical framework within which a youth policy is 
implemented: 
strengthening the role of young people as active citizens in the Community by 
enabling them to be the players in the projects in which they are taking part or 
wish to organize, and by using by way of preference the modes of expression 
which are theirs today; 
catering for the needs of young people while ensuring that there is 
complementarity with other sectors which concern them (employment, education 
and training, social policy, health, etc.); 
promoting intercultural learning by enabling young people from different 
backgrounds to meet up and discuss, learn to become acquainted, to discover and 
accept their similarities as well as their differences; 
promoting preparation and training of youth leaders and/or anyone working 
directly with young people outside the teaching and training structures as such; 
working in partnership nationally with the Member States in a consistent and 
complementary way in relation to the policies, structures and approaches used by 
the Member States; 
structuring Community action so as to guarantee the biggest impact and multiplier 
effect possible as regards the structures, organizations and people directly involved 
in youth work at all levels; 
promoting and developing youth information and research on youth; 
encouraging better understanding of the situation of young people outside the 
Community through exchanges and thus consolidating their sense of solidarity; 
integrating existing experimental actions (priority actions, youth activities under 
the Tempus programme, youth initiative projects under PETRA) while ensuring 
consistency and complementarity with other Community programmes or measures. 
IV. The proposal for a Decision and its Annexes 
A. The Decision 
19. As indicated in the guidelines of 5 May 1993, the Commission will present three 
proposals: one concerning education (universities, higher education institutions, schools), 
on other concerning vocational training (initial and continuing) and finally the third 
concerning youth. 
As shown in the annexed table, Youth for Europe III integrates Youth for Europe II, the 
Priority Actions, and certain actions of the Petra and Tempus programmes as well as the 
appropriate information. 
20. Articles 1 and 2 of the proposal for a decision set out the basis and objectives of the 
proposal for a Decision and the integrated approach it implies. In keeping with its 
approach to education and training, the Commission feels that the time has come to 
progress towards an integrated approach which should permit not only the consolidation 
and enhancement of what has been achieved to date, the pursuance and development of 
innovatory actions at the Community level, but also the strengthening of the quality of 
the educational work undertaken under the different actions proposed. The point is to 
expand, at European level, the field of learning, experimentation and innovation for 
young people, their youth workers and those responsible in this area. An integrated 
approach will make an albeit small contribution, through the players involved, the scope 
and the methods used, to a more egalitarian Europe closer to the citizen and having 
greater regard for differences. It will also constitute, for most Member States, a new 
phase and could have an impact on the development of their action targeted at young 
people, whether nationally, regionally or locally. 
21. Article 1 also indicates that 'Youth for Europe III' covers a period of five years (1995-
1999). This duration will permit greater consolidation of action undertaken and of 
structures set up at all levels to implement this action. 
22. Article 3 proposes positive action for disadvantaged young people. It should be stressed 
that 'Youth for Europe' is the only Community programme which has set a minimum 
threshold for participation of disadvantaged young people and provided for positive 
measures in this connection; it thus represents a considerable asset as regards measures 
to integrate these young people. The new phase of development of Community action 
will pursue and expand the specific consideration given to this group. 
23. Article 4 concerns cooperation with Member States regarding the implementation, 
assessment and monitoring of the programme. Under the terms of the Treaty on 
European Union, the Commission must ensure that the acquis communautaire be 
maintained in full and built on. The Commission thus feels there is a case for 
maintaining the decentralized nature of the programme for exchanges and mobility as 
well as actions targeted at youth workers, which constitute indirect support measures for 
the activities directly involving young people, and periods of voluntary service and 
exchanges with non-member countries during the consolidation phase (last two years of 
the programme). In addition, the integrated approach which underpins the third phase 
of the programme and particularly the addition of actions which did not feature in the 
first two phases, will entail a diversified approach to cooperation with Member States 
depending on the nature of the activities envisaged. 
24. The committee referred to in Article 5 remains the same as the one which has existed 
since the programme's first phase. 
25. In the context of Article 5, one need to stress that the Commission intents to safeguard 
the advantage arising from the participation of the Council of Europe and the Youth 
Forum, as observers, in this committee. In this perspective, the Community wishes to 
promote a flexible system of cooperation around common objectives with the 
intergovernmental international organizations. 
B. Annex 
26. The Annex to the Decision sets out as five actions the activities proposed by the 
Commission within this Decision: 
(1) Action A: Intra-Community activities directly involving young people 
(2) Action B: Youth Workers 
(3) Action C: Cooperation between Member States' structures 
(4) Action D: Exchanges with non-member countries 
(5) Action E: Information for young people and youth research. 
Action A; Intra-Communitv activities direcltv involving young people 
27. In the new perspective opened up for the third phase of the programme exchanges 
should be incorporated into the broader context of youth policy where they belong. The 
Commission's view is that activities of exchanges and mobility should not be one-off 
events but rather form part of an overall approach and represent one of the major 
features of a cycle of activities for young people and of their involvement in society. 
28. Community action at the local level is particularly important in that it ought to bring an 
additional dimension to the activities pursued at this level by getting across to young 
people and local authorities that they are part and parcel of the Community, as the local 
level is where the spirit of initiative and the resolve to participate in this Community 
come to the fore more easily. 
29. The Commission accordingly proposes to support, firstly, projects which favour 
initiative, creativity, and solidarity nationally as well as regionally or locally, provided 
they include an explicit Community dimension through the themes addressed, the 
8 
approaches envisaged or the potential for networking or exchanges with similar projects 
in other Member States, and, secondly, transnational projects between similar initiatives 
in two or more Member States. There should be encouragement in this context for 
activities generating artistic productions for which the transnational aspect is a bonus, 
as artistic expression is an ideal instrument of expression, creativity, solidarity and 
mutual comprehension among young people. 
30. Voluntary work was supported by way of experiment in the second phase of the 
programme in order to ascertain whether this type of action was desirable or whether 
additional measures were needed nationally or at Community level. 
31. The discussions held with representatives of the Member States during this second phase 
of the programme show increased interest in the development of this type of activity and 
the need for a redirecting of voluntary work around new concepts as regards work and 
solidarity in order to avoid any connotation of charity and social dumping. The 
experience with the second phase also confirmed a still substantial disparity between 
Member States in this field and that experience is still very limited in terms of 
transnational activities within the Community. 
32. The point of this type of activity for the young people involved is that they provide 
them with a channel of learning in major sectors of their lives (culture, society, politics, 
religion), and at the same time enable them to take part in innovatory activities for the 
benefit of the community at large. 
33. The Commission fully realizes how important it is to develop this type of activity in the 
Community and how unfamiliar and diversified this situation is for many Member 
States, and feels that initially priority should go to building up a consistent European 
framework while at the same time supporting pilot activities which could make a 
contribution to strengthening this framework of action. 
Action B: Youth workers 
34. Article 126 of the EC Treaty, modified by the Treaty on European Union, refers not 
only to the young people themselves but also to the socio-educational workers involved. 
In the context of this proposal for a Decision, these socio-educational workers involved 
in youth work as described in I - Context and challenges - are targeted through activities 
under this action. 
35. One of the challenges of the third phase of the programme is to broaden the field of 
learning, experimentation and innovation of young people at European level. The role 
of youth workers in this context is essential, for they are in the front line of regular 
contact with young people and play a central role in the development of actions in the 
youth field locally, regionally, nationally and in the Community overall. Their training, 
their expertise and their awareness of die Community situation are thus essential to the 
success of the objectives set for Community action in the youth field. 
36. The Commission feels the activities for youth workers (study visits, training, etc.) 
undertaken under the first two phases of the programme should be extended to all 
transnational youth activities provided for in the third phase, to encourage the creation 
or consolidation of networks of workers in the Member States and to give priority to the 
training of workers who work with disadvantaged young people, in line with the concern 
of the Member States. 
Action C: Cooperation between Member States1 structures 
37. Experience has shown that the need to promote European cooperation between public 
and private structures (government and non-government) working in or responsible for 
the youth field, is a conditio sine qua non for the development of a genuine Community 
action in this context. 
38. There should be particular focus on those responsible for regional and local structures 
who have little or no chance for European level contacts and for whom an action of this 
type represents an undeniable bonus. 
Action D: Exchanges with non-member countries 
39. Article 126 of the EC Treaty, as modified by the Treaty on European Union, provides 
not only for the development of exchanges of young people and socio-educational 
workers, but also for cooperation with non-member countries. 
40. Under the budget heading for priority actions with non-member countries, the European 
Parliament has asked the Commission to implement this cooperation. However, in view 
of the fact that these activities were not supported within a multi-annual action 
programme but on an annual basis, Community action at this level has been sporadic. 
The possibilities opened up by this budget heading has nevertheless made it possible to 
gauge the interest and motivations of associations and groups of young people, and 
especially to highlight the urgent need to lay solid and durable foundations in the 
countries concerned. 
41. The exchanges proposed under Action D are Community exchanges with non-member 
countries which respond principally to two criteria, the one of solidarity and the one 
stipulating the inclusion of two or more Member States and which include an explicit 
European dimension. 
The youth exchange activities envisaged in the framework of this action are equivalent 
in terms of their objectives and their educational profile to the youth exchanges 
supported in the framework of intra-Community actions, 
42. Solidarity amongst young people beyond the frontiers and catering for the demand of 
young people in non-member countries to experience democracy, may be what is needed 
to tilt the balance in favour of a world in which the generations of young people to 
come will be happy to live. 
10 
43. The need to consolidate inter-Community activities and the basis for the development -
so important to the young people concerned - of exchanges with non-member countries 
prompts the Commission to propose a specific action for exchanges with these countries. 
As for the other actions of the programme, die Commission will consult the Consultative 
Committee according to Article 5 of the Decision, in order to make die necessary 
arrangements to best use the available funds, especially concerning the choice of non-
member countries affected by the actions. 
44. The Commission accordingly proposes a two-stage process for all third countries, a first 
phase covering the first three years of the programme (including an assessment after the 
first two years) and a consolidation phase covering the last two years of the programme. 
45. The preliminary phase should firstly enable those who, both in Member States and in 
third countries, already have some experience of these exchanges to make progress, and 
also to allow those with little or no experience to start up. Furthermore, the accent 
during this first phase should be placed on establishing or consolidating the basis 
essential to the development of exchanges as such both in terms of structures and in 
terms of human resources, by a transfer of appropriate training experience and actions. 
46. The experience gained during the preliminary phase and the assessment envisaged at the 
end of the second year should make it possible to circumscribe the specific exchange 
activities to be developed for each group of non-member countries concerned during the 
consolidation phase. For certain countries there is also a case for considering what 
arrangements to introduce experimentally during this consolidation phase as regards any 
structures which might in the future have to act as national agencies. 
Action E; Information of young people and research on youth 
47. Developing and promoting a youth information policy nationally, regionally and locally 
is, of course, a matter for the Member States themselves. As regards the Community, 
this does not only involve catering for the need for information on the Community, but 
also promoting exchange of useful information, particularly between the Member States, 
and exchange of knowhow in this field in order to cater for the needs of young people 
and also to contribute to improving the teaching approaches undertaken with the 
different target groups. 
48. The Commission accordingly intends to use "Youth for Europe III' to develop initiatives 
targeted at those with the potential to disseminate information to a wide audience both 
in terms of instruments such as audiovisual media and data banks and in terms of the 
information points constituted by the structures set up by the Member States, existing 
European networks of youth information centres, or youth hostels. 
49. The new Commission policy on information and communication which specifies the role 
of the services regarding information related to their activities in contrast to the general 
information role of DG X, implies a coherent and rational field of action for youth 
matters, avoiding dispersal and which has continuity. 
11 
In any case, the Commission Communication to the Council and the European 
Parliament on "Actions Plan on youth information" reaffirms the importance for die 
Community of the information efforts at European level. 
The scope for cooperation with DG X for youth-targeted information campaigns on 
general themes of particular concern to them (drugs, figjit against AIDS, etc.) should 
also be considered in this context. 
50. Lastly, no action undertaken in the youth field at Community level can be envisaged 
without a specific input in terms of research to highlight the situation of young 
Europeans and also to identify and implement the common interests which constitute the 
basis for Community action for young people. 
51. As in the case of information for young people, the Commission wants to reach the 
multipliers and promote the exchange of knowledge and information between Member 
States and between them and the Commission. 
52. What has been undertaken by the Commission in this context is thus primarily intended 
to promote and encourage Europe-wide multi-disciplinary cooperation in research and 
documentation around the situation of young people in Europe, and to encourage the 
collection and dissemination of information. 
Conclusions 
53. 'Youth for Europe III' as presented in the proposal for a Decision and its Annexes aims 
to provide the drive needed to develop and reinforce genuine Community cooperation 
in the youth field. 
The programme purports to bring a fresh dynamism and provide an additional dimension 
to the Community's overall action for young people and thus round off existing 
measures in the field of education, vocational training and employment, permitting die 
broadening out of the European and non-member country levels of the field of 
experimentation, learning and innovation for an increased number of young people, 
youth workers and those responsible in this context. 
In this period of economic recession and unemployment which affects young people in 
particular, the credibility of Community action in die eyes of many of these young 
people will, of course, depend on its capacity to solve the economic and social problems 
which affect them. It will also depend, however, on die Community's commitment to 
dialogue with these young people and give them a sense of responsibility as Community 
citizens. 
54. Exchange and mobility schemes acknowledged as successful by everyone during the first 
two phases of the "Youth for Europe" programme and strengthened by the priority 
actions in the youth field have paved the way for a broader concept which is the 
forerunner to a Community youth policy at all levels: the young people themselves, the 
12 
youth workers, the structures involved and those responsible at Community level or in 
non-member countries. 'Youth for Europe III' should make it possible to attain this 
objective. 
55. Alongside these general considerations, it should be stressed how important the proposal 
for a Decision and its Annexes on 'Youth for Europe III' are in the fight against racism 
and xenophobia. Indeed, Community action to encourage understanding between young 
people beyond the frontiers is essential, for it is one of the guarantees for peace, 
cohesion and solidarity for die future. The fight against racism and xenophobia thus 
constitutes a major added value for Community action in the youth field. 
56. Considering the very high degree of decentralization of the programme and the 
experimental character of this decentralisation at the Community level, the first two 
phases for the Youth for Europe programme have been a proving ground for the concept 
of subsidiarity advocated by the Treaty, for the Member States and for the Commission. 
Furthermore, the empirical and specific implementation of priority actions has made it 
possible to at least complement the experience acquired through the implementation of 
the Youth for Europe programme. 
'Youth for Europe III' incorporates the experience of the first two phases and that of the 
priority actions and will have to be based on complementarity between the Community's 
role and that of the Member States, a complementarity which comes out in enhanced 
cooperation with the competent national authorities and the youth organizations 
represented at the Community level by the Youth Forum. 
57. The overall budget of ECU 157 million over five years will make it possible to reach 
a substantial number of young people either directly or through the multiplier aspects 
of all the actions envisaged. 
58. The Community must show young people that its political commitment matches its 
expectations as regards their participation in its construction. 
13 
Proposal for a 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 
adopting the "Youth for Europe III" programme designed to promote 
the development of exchanges among young people and of 
youth activities in the Community 
THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 
Having regard to the Treaty establishing the European Community, and in particular 
Article 126 thereof, 
Having regard to the proposal from the Commission(1), 
Having regard to the opinion of the Economic and Social Committee, 
Having regard to the opinion of the Committee of Regions, 
1. Whereas on 16 June 1988 the Council adopted Decision 88/348/EEC adopting an action 
programme for the promotion of youth exchanges in the Community - "Youth for 
Europe" programme(2) and, on 29 July 1991, Decision 91/395/EEC adopting the "Youth 
for Europe II" programme (second phase)(3) for the period running from 1 January 1992 
to 31 December 1994; 
2. Whereas Council Decision 87/569/EEC of 1 December 1987 concerning an action 
programme for the vocational training of young people and their preparation for adult 
and working life(4) (PETRA), as amended by Decision 91/387/EEC(5), sets out to 
encourage the development of entrepreneurial skills, creativity and initiative among 
young people; 
3. Whereas in Council Decision 89/489/EEC of 28 July 1989 establishing an action 
programme to promote foreign language competence in the European Community 
(Lingua)(6) it was stressed that the "Youth for Europe" programme would not fully 
achieve its stated objectives without accompanying measures to promote training in 
foreign languages, and whereas die Lingua programme provided assistance only for 
projects organized by teaching and training establishments; 
0) 
(2) 
(3) 
(4) 
(5) 
(6) OJNo 
OJNoL 158, 25.6.1988, p. 42. 
OJ No L 217, 6.8.1991, p. 25. 
OJNoL346, 10.12.1987, p. 31 
OJ No L 214, 2.8.1991, p. 69. 
OJNoL239, 16.8.1989, p. 24. 
14 
4. Whereas the Resolution of the Council and of the Ministers meeting within the Council 
of 26 June 1991 on priority actions in the youth field(7) affirmed the wish, on the basis 
of experience acquired in the framework of the "Youth for Europe" programme, to 
intensify their cooperation on exchanges and mobility of young people with the EFTA 
countries, with the Central and Eastern European countries and in the context of the 
North-South dialogue; 
5. Whereas the European Parliament has repeatedly actively supported the development of 
actions and programmes at Community level in the youth field, in particular in its report 
of 24 May 1991 on "Community policies and their impact on youth"; 
6. Whereas the conclusions of the Edinburgh European Council, meeting on 11 and 
12 December 1992, reiterated at the Copenhagen European Council, meeting on 20 and 
21 June 1993, underline the requirement that activities taken to develop the 
independence and creativity of young people must be maintained and that vigorous and 
effective measures must be taken to combat racism and xenophobia, particularly through 
the education of young people; 
7. Whereas youth exchanges are an appropriate method for improving understanding and 
becoming better acquainted with the diverse cultures of the Member States, and 
therefore help strengthen and deepen the whole fabric of interrelations being woven 
between the people of Europe; whereas, in that context, young people's active 
participation in preparing, implementing and monitoring their own projects can be used 
to underpin the relations between young people in the Community in a framework of 
active citizenship; 
8. Whereas, in that respect, it is important to promote the active participation of 
disadvantaged young people in these activities; whereas it is necessary to promote this 
by the selection of actions centred on the social and educative role of youth leaders; and 
whereas the establishment of such a Community action, on the basis of previous 
experience, gives added value at Community level; 
9. Whereas the Commission Communication to the Council and the European Parliament 
of 2 September 1992 on the Youth Information Action Plan affirmed the importance for 
the Community of an information drive among young people at European level; 
10. Whereas it is necessary to reinforce the links between the actions undertaken under the 
"Youth for Europe" programme and those pursued within the framework of social 
policy, the fight against racism and xenophobia, and cooperation with non-member 
countries; 
11. Whereas Community action in the youth field is developed in the context of the 
objectives set out in Article 126 of the Treaty, that is the promotion of youth exchanges 
and of youth workers, in conjunction with cooperation with non-member countries; 
(7) OJ No C 208, 9.8.1991, p. 1. 
15 
12. Whereas implementation of the "Youdi for Europe" programme must be based on 
decentralized structures set up by Member States for the purpose of reinforcing 
cooperation with the national authorities responsible for youth questions, whilst 
continuing to respect the principle of subsidiarity, as defined in Article 126 of the 
Treaty, 
HAVE DECIDED AS FOLLOWS: 
Article 1: Establishment of die 'Youth for Europe 111" programme 
1. This Decision establishes the Community action programme "Youth for Europe III" 
(hereinafter referred to as "the programme") covering youth exchanges inside and 
outside the Community and youth policy. 
The programme is adopted for the period running from 1 January 1995 to 31 December 
1999. 
2. For the purposes of this Decision, "youdi policy" means any measures undertaken for 
young people by Member States which, in the specific pedagogical context of the youth 
sector, aim to: 
allow young people to play an active role in society and its institutions, and 
encourage them to do so; 
encourage independence, creativity and an entrepreneurial spirit among young 
people, in particular at the social, civic, cultural and environmental levels; 
allow young people to express their opinions on die organization of society and 
encourage the various public authorities involved to take heed thereof; 
combat all forms of exclusion, including racism and xenophobia; 
encourage young people to become aware of and recognize the intrinsic value of 
cultural diversity; 
allow young people to view the European Community as an integral part of their 
political, cultural and social environment. 
3. The programme shall not cover projects carried out in the context of education and 
vocational training structures. 
16 
Article 2: Objectives 
1. The main objective of the programme is to contribute to fostering quality education by 
developing exchange activities within the Community, by other supplementary activities 
in the youth policy field connected with such exchanges, and by exchanges with non-
member countries with which the Community has cooperation agreements. 
2. Against this backcloth the programme's specific aims are to: 
(a) promote youth exchanges for young people aged 15 to 25 living in the 
Community; 
(b) support projects and initiatives run by young people for young people, which 
allow them to play an active and acknowledged role in society and to develop 
their personal abilities, creativity, sense of solidarity and independence; 
(c) allow young people to benefit from joint Community-level actions linked to the 
general aims of youth policy at national or Community level; 
(d) step up cooperation among Member States and between them and the Commission 
through exchanges of experience and joint initiatives at Community level, and thus 
to support Member States in their endeavours to improve the quality of services 
and measures for young people, in particular through activities aimed at providing 
young people with information; 
(e) promote exchanges with young people in non-member countries. 
Article 3: Positive action for disadvantaged young people 
1. Special attention will be paid to ensuring that disadvantaged young people have access 
to activities run under the programme and to improving the quality of the projects 
undertaken for this target group. 
The term "disadvantaged young people" refers to young people who experience the most 
difficulties in being included in the existing action programmes both at Community as 
well as national, regional and local levels due to cultural, social, economic, physical, 
mental or geographic reasons. 
2. The Commission and the Member States shall ensure that at least one third of the 
appropriations made available for Actions A, B and C set out in the Annex are used for 
the benefit of disadvantaged young people and that a similar effort is undertaken with 
regard to Actions D and E. 
17 
Article 4; Cooperation with Member States 
1. The Commission shall encourage Member States to take appropriate measures to 
preserve and develop the structures set up to achieve the objectives of the programme 
and to make suitable arrangements for evaluating and monitoring die actions set out in 
the programme and for applying consultation and selection mechanisms. 
2. The Commission shall also support Member States in their efforts to develop youth 
policy in the regions where few opportunities have existed hitherto. 
3. Each Member State shall endeavour, as far as possible, to adopt the measures necessary 
to ensure that young people participating in transnational activities and exchanges under 
the programme do not lose their entitlements, in particular those linked to social 
security. 
Article 5: Committee 
The Commission shall be assisted by a committee of an advisory nature composed of the 
representatives of the Member States and chaired by the representative of the Commission. 
A representative of the Council of Europe and of the Youth Forum of die European 
Community shall participate in the committee as observers. 
The representative of the Commission shall submit to the committee a draft of the measures 
to be taken. The committee shall deliver its opinion on the draft, within a time limit which 
the chairman may lay down according to the urgency of die matter, if necessary by taking a 
vote. 
The opinion shall be recorded in the minutes; in addition, each Member State shall have the 
right to ask to have its position recorded in the minutes. 
The Commission shall take the utmost account of the opinion delivered by the committee. It 
shall inform the committee of the manner in which its opinion has been taken into account. 
Article 6: Implementation 
1. The Commission shall ensure the implementation of the programme. 
2. Decisions on the general balance between the Member States participating in the 
programme and the different types of actions shall be adopted in accordance with the 
procedure set out in Article 5. 
18 
Article 7: links with other Community actions 
The Commission and the Member States shall ensure that this programme is compatible with 
and complementary to other actions undertaken for young people by the Member States and 
the Community. 
Article 8: Monitoring and evaluation 
The Commission shall take the necessary measures to ensure the monitoring and continuous 
evaluation of the programme. 
During the third year of the programme the Commission shall present an evaluation report 
covering the first two years of programme implementation. 
Done at Brussels, 
For the EuropeanParliament For the Council 
The President The President 
19 
ANNEX 
There are to be five main actions, each with its own specific objectives, in pursuit of 
the general objectives defined in Article 2 in order to ensure greater cohesion among the 
various activities in the youth field: 
(1) Action A: Intra-Community activities directly involving young people 
(2) Action B: Youth workers 
(3) Action C: Cooperation between Member States' structures 
(4) Action D: Exchanges with non-member countries 
(5) Action E: Information for young people and youth research 
2. Action A; Intra-Community activities direclry involving young people 
2.1 Involvement, initiative and solidarity form the main foundations for the specific 
objectives of Action A which are based on two major elements: 
Action A.I: Youth exchanges and mobility 
Action A.II: Spirit of initiative, creativity and solidarity among young people 
2.2 Action A.I: Youth exchanges and mobility 
1. The Community shall continue to develop its system of direct financial assistance 
for bilateral exchanges and multilateral exchanges and encounters lasting at least 
one week and taking place on the basis of joint projects within the Community 
between groups of young people aged 15 to 25 from two or more Member States, 
to the exclusion of projects operated in die framework of education or vocational 
training structures. 
Special attention shall be paid to interlinking these projects with other youth 
nr»tivitif»ç nrtwriAp'A fr»r in thft r.nrrftnt nrnoTnmmfi activities provided for in the current programme 
Assistance for exchanges under this action may not exceed 50% of the total 
expenditure involved (travel and programme), except as provided for in Point 5 
below. 
When calculating the assistance to be granted to each Member State, account must 
be taken of the need to guarantee a balance in the flow of exchanges and equal 
opportunities in gaining access, together with certain elements in the situation of 
young people in each country. In this context, such calculation must take account 
of weighting factors currently being determined in consultation with the Member 
States for use as a guideline: geographic remoteness, re-balancing of exchange 
flows taking account of the linguistic situation in Member States, the gross 
national product of each country taking part, etc. 
20 
As part of the positive action for disadvantaged young people at the geographic, 
mental, physical, cultural, social or economic level, in addition to the minimum 
of 30% of the appropriations being made available for this action and earmarked 
for disadvantaged young people in accordance with Article 3 of this Decision, the 
Commission shall set up a reserve fund for granting financial assistance exceeding 
the 50% stipulated in Point 3 above or for supporting, if necessary, other activities 
likely to foster participation by disadvantaged young people. 
2.3 Action A.II: Spirit of initiative, creativity and solidarity among young people 
A.II.l: Youth initiatives 
1. The Community shall support projects in which young people actively and directly 
participate in innovative and creative initiatives and initiatives centring on 
solidarity among young people at local, regional, national or European level. 
2. Such activities may be linked to the exchange and mobility activities pursued 
under Action A.I. because they form the first stage or the outcome thereof. 
3. Initiatives to combat all forms of exclusion shall be encouraged and stimulated in 
a specific manner. 
4. Furthermore, special attention shall be accorded to initiatives involving cultural 
and artistic expression by young people at Community level and aimed at 
arranging joint artistic productions. 
5. Assistance for youth initiatives may be spread over two consecutive years and 
cover projects at local, regional or national level and promotion of the 
transnational aspect, as well as effective establishment of cooperation networks or 
partnership schemes. 
A.II.2: Periods of voluntary service 
1. The Community shall support transnational projects aimed at allowing young 
people to undertake periods of voluntary service in another Member State. Such 
activities shall be aimed at fostering a sense of solidarity among young people, 
promoting a form of social creativity among young people in the Community and 
giving them the opportunity to try out new forms of work benefiting the 
community at large. 
2. As in the case of the youth initiatives supported under Action II, such activities 
may be linked with the exchange and mobility activities pursued under Action A.I 
because they constitute the outcome or the origin thereof. 
21 
3. The Community shall also ensure, during the preliminary phase, that networks of 
cooperation are developed between Member States and the creation of adequate 
infrastructures fostered. 
During this preliminary phase priority shall be accorded to study visits, in-service 
training in existing structures, contact seminars and pilot projects in this field 
directly involving young people. 
4. This provision does not relate to community service activities or activities which 
are an alternative to compulsory military service. 
3. Action B: Youth workers 
3.1 In addition to the activities directly involving young people, the Community shall also 
support activities targeted at socio-educational instructors directly responsible for youth 
activities or connected therewith, and at those responsible for their training. 
3.2 The term "socio-educational instructors" or "youth workers" refers to people working 
in the youth field as defined in Point (a) above, and working directly with young people 
outside the framework of education and training structures whether on a paid or unpaid 
basis. 
Two categories of activity shall be considered: 
3.3 Action B.I: Indirect support for Action A 
(i) Activities (particularly brief study visits, partnership exchanges, contact seminars) 
aimed at facilitating the search for partners and/or launching exchange or 
cooperation projects and making youth workers aware of the reality in the 
Community and the youth work being done in the various Member States. 
(ii) Training of youth workers, with priority going to training those actively involved 
with disadvantaged young people. 
3.4 Action B.II: Direct support for European cooperation on training youth workers 
(i) Activities (in particular study visits, seminars, in-service training) allowing those 
responsible for training youth workers in the Member States to exchange 
experience and information. 
(ii) Activities (in particular development of training modules common to Member 
States, materials for training youth workers, studies) aimed at promoting a 
Community dimension in training and further training for youth workers. 
22 
4. Action C: Cooperation between Member States* structures 
4.1 Assistance shall be given for activities (in particular study visits, seminars, in-service 
training) aimed at promoting cooperation between Member States' structures, both 
governmental and non-governmental, responsible for and working in the youth field. 
4.2 Activities supported under this action shall cover people responsible for youth 
associations as well as public services in charge of youth questions. 
4.3 Special attention must be paid to those responsible for regional and local structures. 
4.4 A reserve fund shall be set up by the Commission to support pilot projects aimed at 
setting up multilateral networks among the Member States' structures. 
5. Action D: Exchanges with non-member countries 
5.1 The Community shall support youth exchange activities involving non-member 
countries. 
5.2 During the first three years of the programme (preliminary phase) assistance may be 
granted to: 
(a) youth exchange activities such as those supported under Action A.I of this 
Decision, and to pilot exchanges; 
(b) activities aimed at laying down solid and lasting foundations for improving the 
quality and ensuring diversification of such exchanges. Such activities shall cover 
youth workers, those responsible for youth structures and the information field. 
5.3 During the last two years of the programme (consolidation phase) priority shall be given 
to activities directly involving young people, the forms and arrangements of which must 
be adapted in the light of the findings from evaluation of the preliminary phase and the 
overall evaluation of the programme. 
6. Action E: Information for young people and youth research 
6.1 The Commission may undertake measures aimed at encouraging and promoting 
cooperation activities at European level concerning provision of information for young 
people and youth research. 
6.2 As regards provision of information for young people, the Community will have a 
decisive role to play among multipliers of information and shall base its action mainly 
on five major areas: 
23 
developing the capacities of the structures set up by Member States in die process 
of providing information for young people; 
using existing youth information networks at European level; 
creating youth media networks for and/or run by young people; 
using the media to promote the programme's objectives; 
operating and networking data banks. 
6.3 As regards youth research, the Community shall focus its efforts on analysis and 
dissemination of data, as well as use thereof for socio-economic research purposes, 
promotion of exchanges of know-how among Member States and between Member 
States and the Commission, and promotion of Community cooperation in this field. 
6.4 The Community shall cooperate closely with the Council of Europe and the international 
organizations active in the youth information and youth research field. 
24 
CURRENT SITUATION 
YOUTH FOR EUROPE 
Exchanges 
Short Study Visits 
Voluntary Service Activities 
Training 
PRIORITY ACTIONS IN THE YOUTH FIELD 
Intensification of cooperation between structures 
responsible for youth work in the Member States 
Information for young people 
Youth Pilot Projects - Stimulating the initiative and 
creativity of young people 
Cooperation in the training of youth workers, 
particularly with regard to the European dimension 
Support for initiatives of Community interest developed 
by youth organisations 
Exchanges of young people for cultural purposes 
Exchanges with non-member countries (Central and Eastern 
European countries, Latin American countries, 
Mediterranean countries) 
PETRA 
Youth Initiative Projects 
TEMPUS 
1. Youth exchanges 
2. Study visits 
3. Training 
E. Information elements about the programme and other 
Community activities in cooperation with DG X PROPOSED SITUATION 
YOUTH FOR EUROPE III 
ACTION A 
Intra-Community activities directly involving young 
people 
* A.I. Youth exchanges and mobility (Al) 
* A.II Spirit of initiative, creativity and 
solidarity among young people (A3, B3, B6, 
CI) 
ACTION B 
Youth workers (A2, A4, B4) 
ACTION C 
Cooperation between Member States' structures 
(Bl, B5) 
ACTION D 
Exchanges withnon-member countries (B7, D) 
ACTION E 
Information for young people and youth research (B2, E) 
FINANCIAL STATEMENT 
1. Tide of operation 
Youth for Europe 
2. Budget heading involved 
B3-1011 Youth Policy (Ex heading B3 -1010 and B3 - 1011) 
3. Legal basis 
Council Decision No 94/ /EEC of 1994 (OJ L /94) 
4. Description of operation 
4,1. General objective 
The main objective of the "Youth for Europe III" programme is to contribute to 
fostering quality education by developing exchange activities in the broad sense within 
the Community, other supplementary activities in the field of youth policy associated 
with such exchanges and exchanges with non-member countries with whom the 
Community has cooperation agreements. 
The proposed activities in the context of the 'Youth for Europe III" programme are 
aimed at the informal Education field and a policy centred on Young people which can 
be termed 'Policy for Youth'. These policies run alongside more formal operations 
aimed at information structures and training which come under sectoral policies. They 
cannot be seen in the same area given the differences in terms of target people, 
objectives and the responsible national authorities. They, therefore, merit a specific 
programme. 
The Commission, in proposing this programme, is continuing its approach in the 
education and training field as laid down in its document 'Directory for Community 
Action in the field of Education and Training* (COM (93) 183 final). 
In this context, the aims of the programme are to: 
(a) promote youth exchanges in the European Community to benefit an increasing 
number of young people aged between 15 and 25 living in the European 
Community; 
(b) support projects and initiatives run by young people for young people which allow 
them to play an active and acknowledged role in society and to develop their 
personal abilities, creativity, sense of solidarity and independence; 
26 
(c) allow young people to benefit from joint Community-level actions associated with 
the general objectives of youth policy at national or Community level; 
(d) increase cooperation between Member States, and between Member States and the 
Commission, through the exchange of experiences and through joint initiatives at 
Community level, and support Member States in their efforts to improve the 
quality of services and measures for young people, in particular through activities 
aimed at providing young people with information; 
(e) promote exchanges with young people from non-member countries and, in this 
context, establish solid and lasting foundations for improving the quality and 
ensuring diversification of these exchanges. 
4.2. Period covered and arrangements for renewal or extension 
Five-year action programme (1995-1999). 
Renewal on the basis of results obtained following an evaluation of the programme. 
5. Classification of expenditure/revenue 
5.1. DNO 
52 CD 
5.3. Types of revenue involved : None 
6. Type of expenditure or revenue 
- 100% subsidy: no 
- Subsidy for joint financing with other sources in the public and/or private sector: 
yes; projects are normally jointly financed to a maximum of 50%, except in the 
case of projects involving disadvantaged young people, for whom the Community 
contribution may amount to 75% of the costs incurred. 
7. Financial impact 
7.1. Method of calculating total cost of operation (definition of unit costs) 
Set out in accordance with the Annex to the proposal for a Council Decision. 
27 
7.2. Itemized breakdown of cost 
in current ECU million 
Breakdown 
Action A - Intra-Community 
activities directly involving young 
people; exchanges of and mobility 
for young people; initiatives for 
young people; periods of 
voluntary service. 
Action B - Youth leaders: indirect 
support to Action A - short-term 
study visits; partnership 
exchanges; contact seminars; 
training for leaders; activities to 
encourage linguistic training for 
leaders. Direct support for 
European cooperation in the 
training of leaders - study visits; 
seminars; in-service training; 
development of common training 
modules; training materials for 
leaders; studies. 
Action C - Structural cooperation 
between Member States: study 
visits; seminars; in-service 
training; pilot projects. 
Action D - Exchanges with non-
member countries - Central and 
Eastern Europe, Latin America, 
the Mediterranean countries -
exchange activités; study visits, 
in-service training; training 
courses; seminars; conferences; 
production of suitable materials 
and information campaigns. 
Action E - Information for young 
people and research into youth 
issues - improving information 
flow to young people; European 
youth information networks; 
media networks for young people; 
networking and use of data banks. 
Accompanying measures -
Technical expertise and the 
necessary support for the 
implementation of the system of 
grants and subsidies; support for 
activités carried out by national 
agencies; meetings of experts, 
conferences. 
TOTAL Budget 1995 
14,5' 
2.32 
0.5 
6.53 
1.5 
1.74 
27.0 1996 
15.2 
2.4 
0.550 
7,5 
1.550 
1.8 
29.0 1997 
15.9 
2.450 
0.650 
8.5 
1.6 
1.9 
31.0 1998s 
17.0 
2.6 
0.8 
9.8 
1.7 
2.1 
34.0 1999 
17,4 
2.7 
0.9 
11.0 
1.8 
2.2 
36.0 TOTAL 
80.000 
12.450 
3.400 
43.300 
8.150 
9.700 
157,0 
28 
Notes 
The 1995 Budget can be compared with the 1994 Budget (the last year of Youth for 
Europe II) on the basis of the following APB 1994 figures: 
APB 1994 (B3-1010 and B3-1011) 14.5 
The inclusion of certain elements of Youth for Europe III 5.5 
already existing but not financed in YFE II. 
(financed by internal reorganization) 20.0 
The difference between this ECU 20.0 million and die 1995 budget (ECU 27.0 million) 
corresponds with quantitive and qualitative progress of YFE III compared to YFE II. 
1 - ECU 1 million awarded to Action A with the aim of safeguarding the current level 
of exchanges for existing Member States within the Community in spite of the 
increase which, taking account of peripheral criteria included in the programmes, 
would tend to penalise the existing Member States as opposed to the new Member 
States. 
ECU 1 million for voluntary service activities to obtain the critical level necessary 
(Pilot Action in 1994); 
ECU 500 000 for the development of transnational local initiative networks for 
young people and of the Community dimension of these initiatives (new action). 
2 - ECU 1 million for awarded to Action B to finance the training of leaders for 
disadvantaged young people as well as the linguistic preparation in the more 
general field of youdi leader training (new actions). 
3 - ECU 1.5 million to develop cooperation between the European Community and 
non-member countries, the Mediterranean and Latin American countries in the 
field of exchanges of young people and youth activities. 
4 - Minimal increases for all the other activities of the programme. 
The distribution of the appropriations asked for between the Actions (A to E) and 
especially those concerning the additional credits on the different headings will be 
determined by the global weight of allocated appropriations from die budgetary 
authority. 
29 
7.3. Indicative schedule of appropriations 
7.3. Schedule for proposed new operation 
in current ECU million 
Commitment 
appropriations 1995 
27.0 1996 
29.0 1997 
31.0 1998 
34.0 1999 
36.0 TOTAL 
157.0 
Payment 
appropriations 
1995 
1996 
1997 
1998 
1999 + 5 and subs, yrs 
TOTAL 21.6 
5.4 
27.0 23.2 
5.8 
29.0 24.8 
6.2 
31.0 27.2 
6.8 
34.0 36.0 
36.0 21.6 
28.6 
30.6 
33.4 
42.8 
157.0 
30 
Fraud prevention measures; Results of measures taken 
AH contracts, agreements and legal undertakings by the Commission make provision 
for the possibility of spot checks by the Commission and by the Court of Auditors. 
Among other things, beneficiaries of actions are obliged to provide reports and 
financial statements which are analysed with regard to the content and the eligibility 
of expenditure, in accordance with the aim of Community financing. 
9. Elements of cost-effectiveness analysis 
9.1. Specific and quantified objectives; target population 
The aim of the proposal for the third phase of the programme is to ensure improved 
cohesion between the different actions in the youth field. The proposed approach is 
not simply an addition to actions which have until now been dispersed under other 
Community programmes or budget headings, but represents a new approach to the 
programme. 
With this new integrated approach, the Commission wishes on the one hand to ensure 
the greatest possible impact and multiplier effect through the structures, organizations 
and persons directly involved in youth work and, at European level, to widen the 
scope for learning, experimentation and innovation for an increased number of young 
people, leaders and those responsible for policy in this field. 
Five main actions, each with its own specific objectives, have been developed in order 
to achieve these general objectives, while respecting the diversity of approach by 
Member States: 
(1) Action A: Intra-Community activities directly involving young people 
(2) Action B: Youth leaders 
(3) Action C: Structural cooperation between Member States 
(4) Action D: Exchanges with non-member countries 
(5) Action E: Information for young people and youth research. 
Action A; Intra-Community activities directly involving young people 
In general, the innovatory approach to the third phase, as proposed in this document, 
should be stressed. In contrast to the first two phases, exchanges are no longer the only 
activity directly involving young people and supported by the programme. They remain 
at die heart of the proposed measures because they are the ideal Community tool for 
adding value, but they cannot comprise a single specific element, and must therefore 
form part of the more global approach to youth policy. 
31 
1- Specific objectives 
Transnational cooperation with regard to projects for exchanges and 
meetings outside the formal framework of education, training and labour 
market mechanisms (particularly for young people who, under normal 
circumstances, do not have access to such activities); 
Transnational cooperation on projects with clearly defined themes, organized 
with the direct and active participation of groups of young people (either 
formal or informal groups) and youth organizations; 
Transnational cooperation intended to promote intereultural learning 
(enabling young people from different environments to meet and discuss, 
become acquainted and discover and accept their similarities and 
differences); 
Reinforcing the role of young people as active citizens of the Community 
by providing them with the resources to take an active role in the projects 
in which they take part or which they wish to organize, and encouraging the 
types of expression which they understand; 
Meeting the needs and interests of young people while ensuring 
complementarity with other sectors involving them (employment, education 
and training, social policy, health, etc.). 
2. Target audience 
Young people between the ages of 15 and 25 resident in a Member State of the 
European Community form the target population for the programme, with 
particular attention being devoted to those young people disadvantaged as a result 
of certain physical or mental conditions or of their economic, social or cultural 
situation. 
3- Budget of Action A 
Over 70% of the proposed credits will need to be allocated to Actions A and 
D, i.e. to those directly involving young people. 
Assessment of the credits allocated to Action A must take account of the 
following: 
(a) The risk of an increase in the number of disadvantaged young people 
over the coming years, given the social context which is directly 
affecting them and, in the light of this, the positive action in their 
favour provided for under the terms of Article 3 of the proposal for a 
Decision (one third of the credits allocated must be used to assist this 
target group), and the possibilities for financing at a level greater than 
the 50% threshold for exchange activities among this target group. 
32 
(b) An evaluation of the first phase of the programme showed that there 
were only 77 multilateral projects during this phase - involving 3 700 
young people - which represents less than 5% of the total number of 
participants for the first phase, at a cost to the Community of 
ECU 720 250. The challenge for the third phase, therefore, following 
the first two phases during which the exchanges were established, lies 
in significantly increasing the number of multilateral exchange 
activities, bearing in mind the high cost of such activities. 
(c) While keeping the emphasis on exchanges of young people, the third 
phase makes provision for significantly extending the scope of activity, 
fostering a spirit of initiative and solidarity among young people and 
thereby encouraging a greater Community-wide impact among them. 
Activities hitherto supported by the Commission in this field were 
either purely experimental or for the most part essentially local in 
character. 
The challenge for the third phase lies in developing the Community 
dimension for these activities and encouraging transnational aspects 
which are likely to generate some mobility, not only physical but also 
intellectual, encouraging new forms of communication and partnership 
between a growing number of young people in Member States. 
Beginning and developing such a process implies the availability of 
substantial financial resources in order to progress beyond its current 
purely experimental and specific character. 
In addition, the challenge to the Community represented by voluntary 
service activities and the need to establish solid foundations in all 
Member States and at Community level in order to ensure significant 
development of activities of this type also require appropriations which 
take account of the generally high cost of such activities and of the 
fact that voluntary service for young people is still unknown in some 
Member States as well as at Community level. 
Action B: Youth leaders 
While continuing activities undertaken during the first two phases, and extending them 
to include the transnational activities for young people scheduled for the third phase, 
the Commission wishes to use this new stage to emphasize new approaches with 
regard to language training for leaders, training for leaders working with disadvantaged 
young people and the establishment or consolidation of networks. 
33 
1. Specific objectives 
To reinforce and develop the diversification and improve the quality of 
exchanges and of all transnational activities under Action A. 
To promote a European dimension in the training and further training of 
youth leaders. Given the significant diversity between Member States in 
terms of both the status of leaders and of training, this objective represents 
a significant added value to Community action. 
2. Target public 
Youth leaders working directly with young people outside the formal education 
and vocational training structure. 
3. Budget of Action B 
The training of leaders involved with disadvantaged young people, as well as the 
preparatory linguistic aspect in the more general field of the training of leaders, 
consists of two new activities which will enhance existing activities - to different 
degrees - leaders in the existing programme's field or in Priority Actions. 
These two types of activity are not only new to the programme, but they will also 
have to be designed practically from scratch, since there is at present virtually 
nothing available in these two areas other man on a very small scale. In particular, 
they will require suitable materials, assistance from experts, pilot training projects, 
etc. 
Activities involving leaders undertaken during the first two phases will need to be 
extended to cover all transnational activities for young people set out in the 
programme; this will require a new approach but also, and particularly, an 
increased volume of activity in this field. 
Action C: Structural cooperation between Member States 
1. Specific objectives 
to encourage improved mutual knowledge of those structures in Member 
States responsible for or active with young people; 
to encourage cooperation between them; 
to encourage the creation of new networks of partnerships between these 
structures. 
34 
2. Target public 
Those in positions of responsibility in both public and private structures 
(governmental and non-governmental). 
Particular attention will need to be given to those responsible for regional and 
local structures who have little or no opportunity for contacts at European level 
and for whom such an action would definitely represent an added value. 
3- Budget of Action C 
It should be borne in mind that these structures, whether governmental or non­
governmental, have very few resources, either financial or human, and mis applies 
particularly at regional and local levels. 
Action D: Exchanges with non-member countries 
The exchanges proposed under Action D are Community exchages with non-member 
countries which respond principally to two criteria the one of solidarity and the one 
of inclusion of two or more Member States and which include explicitely an European 
dimension. 
The youth exchange activities envisaged in the framework of this action are equivalent 
regarding their objectives and their educational profile to the youth exchanges 
supported in the framework of intra-Community actions. 
1 • Specific objectives 
To encourage improved understanding of the situation of young people 
outside the Community through exchange activities, reinforcing a sense of 
solidarity; 
To consolidate preliminary foundations for a significant development of 
exchanges of young people with non-member countries, in terms of 
structures and human resources. 
2. Target public 
With regard to young people themselves: those aged between 15 and 25 living in 
a Member State of the European Community and those in the non-member 
countries involved. 
With regard to measures concerning structures and human resources: youth 
workers and those responsible for public and private sector (governmental and 
non-governmental) youth structures in the Member States and non-member 
countries concerned. 
35 
3. Budget of Action D 
It is worthwhile pointing out that 70% of the proposed appropriations are allocated 
to Actions A and D in the proposed programme. 
The evaluation of the appropriations allocated to Action 0 will have to take 
particular account of the following: 
The low level of resources available to associate partners in the non-member 
countries concerned; 
The geographical scope of mis action and the significant resulting costs, 
particularly with regard to transport; 
The budget for Action D will need to be increased from 1998 onwards in 
order to develop exchanges initiated during the preliminary phase, to 
encourage and prepare for the establishment of national coordination units 
envisaged by the countries of Central and Eastern Europe in the light of 
developments initiated during the preliminary phase and in accordance with 
the capacity of the countries concerned. 
Action E; Information for young people and youth research 
1. Specific objectives 
Information for young people: 
To develop the capacities of structures established by Member States in the 
process of disseminating information aimed at young people; 
To exploit existing information networks for young people at European 
level; 
To create media networks for young people aimed at and/or managed by 
young people; 
To use the media to promote the aims of the programme; 
To network and exploit relevant data banks. 
Research into youth matters 
To analyse and disseminate relevant data from Member States; 
To promote the exchange of know-how between participating countries as 
well as between participating countries and the Commission; 
36 
To promote Community cooperation in this field. 
2. Target public 
The information services of national agencies; 
Information services and centres for young people; 
Youth media outlets; 
Experts in research subjects in the youth field. 
3. Budget of Action E 
The aim of this new framework will be to respond quickly to repeated 
requests for specific information on youth issues, but also to encourage 
improvements in the exchange of information between the Commission and 
national authorities to create initiatives aimed at those with the potential to 
disseminate information to a wide audience and to strengthen cooperation 
with the Council of Europe. 
A totally new approach of this type will require, among other things, the 
creation of appropriate information materials and the use or creation of tools 
such as audiovisual media and data banks. 
Multidisciplinary cooperation at European level on research into youth 
matters is a totally new activity for the Community. In this instance, those 
disseminating information in this field will also have to be targeted, and the 
collection and dissemination of data and the exchange of know-how and 
information between Member States and the Commission will have to be 
encouraged. 
Accompanying measures 
Under these appropriations, assistance will be granted to the following activities: 
1. Measures taken by the Commission in order to accompany and support actions 
laid down in the programme, in particular the provision of expertise and technical 
assistance in administering the programme. 
2. Assistance in carrying out the structural activités referred to in Article 4(3) of the 
Decision. 
37 
9.2. Justification of the action 
9.2.1 The Commission has noted with enthusiasm the interest shown by young people 
themselves with regard to the Community's actions in the youth field, notably during 
the first two phases of the "Youth for Europe" programme and under the priority 
actions in the youth field, with requests submitted by young people and their 
organizations far exceeding both the operational objectives and the budget allocated 
to the Commission. 
9.2.2 In adopting the first two phases of the "Youth for Europe" programme and the 
Resolution on Priority Actions in the youth field, Member States have also shown their 
interest in supporting such activities, and their intention to promote wider cooperation 
in the youth field at Community level. 
9.2.3 The European Parliament, in addition to its repeated support for the "Youth for 
Europe" programme since its adoption, has shown increasing interest in actions in the 
youth field and has given a political sign in favour of more coherent, diverse and 
greater action at Commission level in the youth field and has established budget 
heading B3-101 "Youth policy" accordingly, enabling the Commission to give 
financial support to a series of measures, including those involving non-member 
countries. 
9.2.4 It is important to stress that, in contrast to Community programmes in the field of 
education and vocational training, Youth for Europe was developed with little or no 
existing structure for exchanges of young people in a number of Member States. 
Community action, supported by the decentralized nature of the programme, has 
allowed for the creation and development of national structures for exchanges : 
National Agencies, and also what are often new systems for many of them - for 
example systems allowing for the training of youth leaders. 
9.2.5 In addition, these national agencies work within a true network built up over the years 
and in close interaction with the Community. Community action has therefore given 
an additional impetus to youth exchange activities even in those countries with a 
longer tradition in this field, by creating a Community dimension. 
9.2.6 This very important added value for Community action needs to be not only 
maintained and reinforced through exchanges, but also extended to other actions in the 
youth field. 
9.2.7 Experience has also shown that activities supported at Community level have often 
been an important incentive for the development of initiatives or actions which had 
not previously existed in some Member States. This was the case, for example, in the 
field of voluntary service activities and for the training of youth workers. 
As the third phase of the programme is more global and more coherent, the role of the 
Commission as an instigator will be reinforced. For most Member States, this phase 
will be new, and there will inevitably be effects on the development of their actions 
for young people. 
38 
9.2.8 The proposed approach for the third phase is based on the complementarity of the 
Community's role to that of the Member States, which will be reflected in increased 
cooperation with the relevant national authorities. 
9.2.9 Community action thus guarantees a real Community dimension to actions undertaken 
from local to national level, and greater cohesion both in the distribution of 
Community funds and in the results obtained. 
9.2.10 Finally, individual Member States' initiatives could prove often more expensive and 
less profitable for they would need, in the majority of cases, more investment in 
research of partners and more expertise, where they could concentrate their efforts on 
a bilateral level. 
Community Action which allows communal effort, on a multilateral level of financial 
resources, modes of management, expertise and results, results in the best possible use 
of financial resources. 
Until now, the policy implemented has also had a multiplier effect with regard to the 
mobilization of additional national sources of finance. Setting the ceiling for 
Community joint financing at 50% (with the exception of certain projects for 
disadvantaged young people) has a dual effect. Firstly, it draws the attention of the 
authorities at all levels (national, regional and local) to the relevance of funds allocated 
to international cooperation between young people, and secondly, it contributes to the 
learning process for young people by mobilizing them to find the additional funds. 
9.2.11 Such a policy therefore makes it possible to achieve, at limited cost, a significant 
impact over and above the specific objectives, and a multiplier effect with regard both 
to sources of finance and to the number of beneficiaries. 
9.2.12 With regard to the structuring of the third phase, the integrated approach proposed in 
this document should facilitate access for the young people concerned by presenting 
them with a coherent initiative, and it also represents a rationalization of the most 
important factors, from the point of view of the pooling of transnational expertise, 
unified procedures and consolidated assessment and monitoring in a partnership 
between the Commission and the countries participating in the programme. 
Integrating exchanges with non-member countries into the "Youth for Europe" 
programme will enable youth organizations and groups in the Member States to 
broaden their participation to include exchanges with these countries and to strengthen 
existing partnership networks. 
9.2.13 The specific nature and scope of the programme mean that it is aimed at a wider and 
more diversified audience than other Community programmes aimed at young people. 
The integrated approach proposed for the third phase of the programme should enable 
it to reach a very wide audience at all levels of the young population, with particular 
attention to disadvantaged young people. 
39 
9.2.14 The diversification of exchanges and transnational activities as well as the 
improvement of mis quality constitute another secondary effect of the proposed 
actions. The integrated approach proposed by the Commission for the third phase of 
the programme should primarily make it possible on the one hand to consolidate and 
enhance existing achievements and on the other hand to pursue and develop 
innovatory measures at Community level. 
In addition, the provisions laid down under Actions B, C and E relating to youth 
leaders, structures in Member States and information and research in the youth field, 
will contribute to the pursuit and development of previous efforts to improve the 
quality of activities directly involving young people. 
9.2.15 Lastly, young people themselves will be the first to spread the benefits of the 
programme in so far as they will be able to give other young people the benefit of 
their experience and discoveries, but also, quite simply, because their very 
participation in a Community programme will have the effect of bringing the 
Community into their immediate environment in a more specific form: in school, in 
the family, among friends, in youth organizations, etc. 
Experience has shown that participation in an activity under the "Youth for Europe" 
programme or in the priority actions in the youth field has enabled young participants 
to discover other Community actions and to obtain information on possibilities in other 
relevant sectors, such as education or vocational training. 
9.2.16 Where youth leaders are concerned, experience shows that those who have hitherto 
been able to benefit from a study visit or from training at European level bring an 
additional dimension to the activity they organize with young people in the field and 
also constitute important resources not only for their organization but also for other 
youth groups wishing to participate in a Community action. 
9.2.17 A "running-in" period will be necessary, given the new approach initiated under die 
third phase as proposed in this document and the potential for experiment and 
innovation in the actions planned. This running-in period should enable Member States 
to adapt their structures and support procedures to transnational youth activities, but 
also to place their cooperation with the Commission for the implementation of the 
programme on a systematic footing. 
This running-in period will inevitably require an input from the Community, but this 
will taper off as time goes by as shown in table 7.2 (Allocation per element of the cost 
of Action). 
The positive signal and new impetus that the Commission wants to give in this third 
phase to existing efforts by the Member States should become apparent in budgetary 
terms. 
40 
9.2.18 Similar actions developed at Community level relate to sectoral policies for the 
education and training sectors. They therefore relate to a specific public, namely young 
people in vocational training and students in higher education, and pursue specific 
objectives based on the requirements of the sectors concerned (curricula, the labour 
market, economic competitiveness). 
Measures planned under the present proposal are not, strictly speaking, part of sectoral 
policies but of what might be termed a "youth policy" based on young people as a 
social group. Their target public is therefore much wider and more diversified, and 
both the aims and the methods used differ from those which apply to measures in the 
fields of education and training. 
9.2.19 With regard to exchanges with non-member countries, and in particular to the TACIS, 
Phare and MEDURBS programmes and cooperation with the countries of Central and 
Latin America, the present cooperation with DG I makes it possible to develop 
complementarity and synergies. Any assessment of experience acquired in the field of 
exchanges with non-member countries could also be used to develop synergies with 
actions planned under Lomé IV. 
9.2.20 The experimental dimension of the actions proposed for young people under the third 
phase of the programme takes on particular significance in the current social context, 
directly targeting young people, with a view to developing synergy with the European 
Social Fund. 
9.2.21 Finally, with regard to information for young people, the Commission's new 
information and communication policy, which defines the role of departments in 
providing information on their activities, in relation to the general information role 
fulfilled by DG X, will also enable the development of complementarity. 
9.3. Monitoring and evaluation of the operation 
9.3.1 Guide to selected Performances. 
In terms of qualitative factors. 
- Success rate of tri-and multi-lateral projects. 
- The result of National agencies and structures and consequently the degree of the 
programmes' penetration in Member States, particularly the participation of 
disadvantaged young people, who are a priority target of the programme. 
The equal flow of exchanges, especially following the integration of EFTA/EEA 
countries as well as by the two big axes of activity with the non-member countries 
(Central and Eastern Europe and Latin America.) 
The capacity of young people to finance part of their project (disadvantaged young 
people not included). 
41 
Development of a better mix of skills from the training of leaders based on the 
concept of intercultural learning. 
Development of the capacity of passing-on information at local level. 
Mobilizsation of youth organizations capacities. 
A base for evaluation can be formed from the quantitative factors. 
Level of disadvantaged youth participation 
cost of participant 
total number of participants 
However, awareness of these quantitative factors does nott always allow for an 
appropriate apprecation of the work put into the programme. 
To do this, a periodical evaluation must take place covering the opinions and enquiries 
of the participants. 
9,3.2 In accordance with Article 10 of the proposal for a Decision concerning the third 
phase of the programme: 
During the third year of the programme the Commission shall present an 
evaluation report covering the first two years of programme implementation. On 
the basis of this report, the Commission may submit proposals to the Council and 
the Parliament concerning readjustment and subsequent development. 
External evaluation of the "Youth for Europe" programme and the various activity 
reports on both the programme and the priority actions are enclosed with the present 
document. 
9 4 Coherence with financial programming 
Is the operation incorporated in the DG's financial programming for the relevant 
years? 
Yes 
To which broader objective defined in the DG's financial programming does the 
objective of the proposed operation correspond? 
"Education, Training, Youth" 
42 
10. Administrative expenditure (Part A of the budget) 
This section of the financial statement must be sent to DGs IX and XIX; DG IX will 
then forward it to DG XIX with its opinion. 
10.1 Will the proposed operation involve an increase in the number of Commission staff? 
If so, how many? 
2A, IB, 2C 
10.2 Indicate the amount of staff and administrative expenditure involved in the proposed 
operation. 
The increase in staff shown above is necessary. 
Explain the method of calculation. 
A. The increase in staff is necessary due to: 
The increase in the total amounts to be administered and the resulting 
administrative implications (IB, 1C). 
Developments in the design and organization of the external aspect of the 
programme, particularly actions in the countries of Central and Eastern 
Europe (1A). 
The extension of the information/training tasks linked to the development of 
the programme (1/2A). 
Coordination and administration of an increased number of national 
coordination units, increasing from the current level of 15 to 20 (1/2A, 1C). 
Calculation of approximate amounts for one year (1993 prices) to be kept constant 
in real terms over the period: 
2 A5 officials (salary + infrastructure) ECU 242 000 
1 B3 official (salary + infrastructure) ECU 80 000 
2 C3 officials (salary + infrastructure) ECU 126 000 
TOTAL ECU 448 000 
B. To this amount should be added personnel and operating costs directly linked to the 
administration of the programme. Its level will be fixed according to general 
orientations laid down by the Commission regarding technical assistance and on the 
basis of experience acquired in the subject. 
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ISSN 0254-1475 
COM(93) 523 final 
DOCUMENTS 
EN 16 
Catalogue number : CB-CO-93-567-EN-C 
ISBN 92-77-60233-3 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
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