COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 26.06.1996 
COM(96) 297 final 
Proposal for a 
COUNCIL DECISION 
on a joint action 
introducing a programme 
of training, exchanges and cooperation 
in the field of identity documents 
(presented by the Commission) 

CONTENTS 
I Explanatoiy Mémorandum 3 
A. Background to proposal 3 
B. Scope of proposal 4 
C. Comments on individual articles 4 
II Draft decision 8 
A. Recitals 8 
B. Operative provisions . 9 
C. Financial statement 13 
EXPLANATORY MEMORANDUM 
A Background to proposal 
1. Security in matters of identity documents and measures to combat forgery were 
seen as matters of priority for improving the effectiveness of identity checks at 
the external borders even before the Treaty on European Union came into force. 
The cooperation provided for by Title VI of the Union Treaty has œnfirmed that 
priority. The effectiveness of control work depends not only on information 
channels such as the Fraud Bulletin and the Authentic Documents Manual but 
above all on the training of those officials whose responsibility it is to perform 
the actual checks. That will result not only in greater mutual acquaintance 
between officials but also in an enrichment of the techniques and procedures 
applied. The joint action proposed here will also be a vital weapon in the fight 
against trafficking in human beings generally and clandestine immigration in 
particular. 
Article K. 1(2) of the Treaty on European Union defines "the exercise of controls" 
on the crossing by persons of the external borders of the Member States as a 
matter of common interest. 
2. At their meeting in Lisbon in June 1992, the ministers responsible for immigration 
decided to organize training seminars to this effect, two examples of which, 
intended for specialists to impart their own experience, have already taken place. 
The second, held in 1995, was charged to the Community budget under Article 
K.8oftheTEU 
Both the participants and the relevant Council working party made a positive 
assessment of the latter seminar, stressing that these experiments deserved to be 
explored further and made a regular feature in the form of carefully planned 
programmes. 
Pragmatic cooperation of this type has therefore shown itself to be a valuable 
complement to the Council's legislative activity. It must not be ignored that 
Article K.3 explicitly provides for collaboration between the relevant national 
administrative departments. 
3. These initial experiments have highlighted particularly pressing needs in specific 
respects - training for trainers and for specialists. The former has a multiplier 
effect, as the results of training conceived and dispensed at Union level are 
disseminated throughout the Union. With the latter, experts' know-how can be 
constantly adapted to the ongoing process of technological development without 
unwarranted delay, and the quality of the training given to those responsible for 
controls can be maintained. Success in these areas will depend on durability of the 
measures undertaken and on a coherent concept and organization. 
B. Scope of the proposal 
4. The aim of the joint action is: 
as to substance, to devise a programme which is consistent, encompasses 
the various components of a training policy and comprises both tuition 
proper and periods of training and exchanges in other States in such a way 
as to consolidate existing links between the departments responsible for 
identity control; 
as to timing, to establish multiannual practical cooperation between the 
authorities responsible for checking identity documents, resulting in greater 
familiarity with the methods used in other Member States and more 
effective ways of combating the use of forged documents. 
The lessons learnt at the initial stages need to be explored in greater depth. 
Particular thought should be given to the idea of exchanges between officials 
while the study and research aspect needs to be examined further so that the 
effects of activities can filter through more easily to those who have not actually 
taken part in training. 
5. The structure of this programme is therefore one of annual training sessions 
hinging on seminars, accompanied by exchanges between officials and involving 
study and research activities. This structure reflects the needs revealed by the 
evaluation of the seminars already held and confirmed by Council working parties 
of experts from the Member States. This structure does not prevent other measures 
from being devised as and when new technology for the production of non-
forgeable documents and the detection of forgeries is introduced. 
The complementarity of this approach allows a certain measure of flexibility in 
the management of the multiannual programme whilst respecting its fundamental 
priorities. Such flexibility is needed in order to adapt as quickly as possible to 
technological developments and counteract new ways of using forged documents. 
6. The programme is designed to meet these objectives by underpinning initiatives 
taken in the field of continuing training by public or private institutions in order 
to increase familiarity with the techniques by which identity documents are 
produced and to heighten awareness of the need to combat the use of forged 
documents. Furthermore, thanks to the potential economies of scale afforded by 
this programme, it may eventually be possible to incorporate it into a broader 
programme relating to border checks, to be implemented experimentally in 1996. 
C Comments on individual articles 
Article 1 
Article 1 sets out the general principle and objectives of the programme and stipulates 
that it is to qualify for Community support. The attached financial statement allows a 
total package of ECU 5 million for the first five years, with the proviso that an initial 
appropriation of ECU 400 000 will be allocated to the programme in 1996. 
The objectives are set with the emphasis on the dual aspects of the programme's perennial 
nature and the need for further exploration of the measures involved. Particular stress is 
laid on the importance of clearly defined priorities as prerequisites for ensuring the 
overall consistency of the programme. In this respect, the adoption of a long-term 
approach seems to be the most effective way of exploring both the means of action and 
the possibility of tackling the problem from the angles of both prevention and prosecution 
(technical, legal or even cultural and sociological dimensions). 
Article 2 
Article 2 provides the basic definitions needed to understand the exact features of this 
joint action, with particular reference to identity documents and the main types of 
measure making up the programme. 
Article 3 
Article 3 deals with the first component of the annual programmes, i.e. the seminars. 
There are to be two types of seminars: "general seminars" for the instructors whose 
responsibility it will subsequently be to relay the information onward in the Member 
States, and "specialist seminars" to enable recognized specialists to study specific aspects 
identified as meriting particular attention. These seminars are to be held at regular 
(annual) intervals so as to produce a knock-on effect, culminating, at the end of the 
exercise, in a genuine reference source. They will share the characteristics of being 
designed for the purpose of studying the theoretical and practical aspects of document 
security, providing an opportunity to update existing knowhow and developing teaching 
methods for instructors. Obviously, this must not involve any encroachment on the 
powers of the Community, for example as regards the standard format for visas or the 
Union citizen residence card. 
In view of the special links with the associated countries (Central and Eastern Europe, 
Cyprus and Malta) and given the need to devise ways of combating the use of forged 
documents beyond the purely European Union context, provision has been made for 
holding a number of seminars for representatives from the associated countries. Experts 
from these countries will be invited to attend specially organized broader-purpose 
seminars, i.e. seminars where those aspects of most direct concern to them can be 
addressed. 
Article 4 
Article 4 deals with the aspect designed to supplement the seminars, i.e. exchanges 
between officials. These may take the form, for instance, of unilateral or reciprocal 
placements in the national departments responsible for control so as to enable officials 
to gain first-hand experience of the problems encountered in other Member States and of 
the most up-to-date methods of designing and producing identity documents. 
Since these exchanges will also be open to representatives of non-member countries and 
not merely those of associated countries, participants will also be able to learn from the 
experience gained by countries pursuing similar aims. 
Article 5 
The third component of the annual programmes relates to studies, the main purpose of 
which will be to devise and disseminate teaching materials (teaching kits, back-up 
software etc). Research might focus more on the design of equipment for the checking 
of documents and technology for the rapid dissemination of data on forged documents 
and their use. 
Article 6 
The overriding criterion which determines whether or not a measure qualifies for 
Community support is its value to the Union. To be certain as to this fact, the principle 
is laid down that in the case of measures involving only Member States, there must be 
at least three of them. In the case of measures involving associated countries, these 
should involve at least two Member States and three associated States. This avoids any 
danger of duplication with bilateral initiatives taken by the Member States. 
Article 7 
These provisions relating to the jurisdiction of the Commission and the Court of Justice 
are conventional for an instrument of this type. 
Article 8 
This article sets out the general terms of financing under the Community budget. 
Paragraph 2 lays down an overall limit embodying the principle that the contribution 
made by the national authorities must be less than the contribution from the Community 
budget. However, in order to remain flexible enough to adapt to individual programmes, 
this ceiling may be raised to take account of the particular circumstances described in 
paragraph 3. 
Paragraph 4 lays down the principle that the Community contribution is confined to 
certain categories of expenditure, thus emphasising the operational rather than 
administrative nature of the budget item. Here too, a certain measure of flexibility is 
allowed in order to be able to adapt to particular circumstances. 
Article 9 
The rules of procedure set out in this article are conventional for an instrument of this 
type. 
Article 10 
This article lays down the principle of the responsibility of the Commission for managing 
and monitoring the programmes and, in particular, for drawing up annual programmes. 
The Commission has a central role to play in the conduct of these programmes. In 
devising the annual programmes, the Commission will have to process the various 
applications submitted to it. To this end, it will also process the proposals submitted by 
the Member States, thus enabling them to contribute to the design of the programmes. 
Suggestions will be considered in the light of three criteria set out in the second 
subparagraph of paragraph 2. In its processing work, the Commission will, where 
necessary, draw on the advice of experts well versed in the methods of combating forged 
identity documents. 
Article 11 
This article deals with the decision-making procedure for the adoption of the annual 
programme. A committee has been set up to operate on the basis of Procedure Ha of 
Council Decision No 87/373 of 13 July 1987 laying down the procedures for the exercise 
of implementing powers conferred on the Commission (OJ L 197, 18.7.1987, p. 33). The 
draft annual programme will be submitted to a committee chaired by the Commission, 
which will decide by a majority of votes as provided for in the second subparagraph of 
Article K.4(3) of the TEU. Should the Commission reject the opinion of the Committee, 
it will be up to the Council itself to decide. This procedure presents the two-fold 
advantage of consultations with the Member States within the Committee and 
effectiveness of the decision-making procedure where there is agreement. The advantages 
of this procedure, which has proved itself in other contexts, will also become apparent 
in relation to this programme. 
Article 12 
This article provides for evaluation and monitoring. This task is incumbent primarily on 
the Commission, which has to ensure that Parliament and the Council are kept 
appropriately informed so as to maintain concordance with work in progress or planned 
in the field of external borders, asylum and immigration. 
Article 13 
The provisions relating to the entry into force of the common action set out in this article 
are conventional for an instrument of this type. 
DRAFT DECISION 
OF THE COUNCIL OF THE EUROPEAN UNION 
OF. 
on a common action 
introducing a programme 
of training, exchanges and cooperation 
in the field of identify documents 
THE COUNCIL OF THE EUROPEAN UNION 
Having regard to the Treaty on European Union, and in particular Articles K3(2)(b) and 
K.8(2) thereof, 
Having regard to the Commission proposal of , 
Whereas the Member States consider identity checks on persons crossing the external 
borders of the Union and the security of identity documents to be a matter of common 
interest; 
Whereas the establishment of a framework for training, information, study and exchange 
activities will serve to improve officials' familiarity with the techniques applied in the 
production and checking of identity documents in other Member States and consequently 
lend greater effectiveness to the efforts made to combat forgery; 
Whereas, thanks to the economies of scale and cumulative effects implicit in the intended 
measures, these objectives can be achieved more effectively at Union level than at the 
level of the individual Member States; 
Whereas this joint action will not prejudice the powers of the Community, especially in 
the field of vocational training and will therefore not detract from the Community 
measures taken in implementation of this policy, in particular the Leonardo da Vinci 
programme, 
HAS DECIDED AS FOUUOWS: 
SECTION!- GENERAL 
Article 1 
Principle and objectives 
1. A programme (hereinafter referred to as the Sherlock programme) of training, 
exchange and cooperation in the field of the security of identity documents within 
the meaning of the definitions in Article 2, which shall qualify for Community 
financial support, is hereby established for the period from 1996 to 2000. 
2. Without prejudice to the powers of the Community, the general objective of the 
programme shall be to extend existing cooperation in the matter of identity 
documents thanks to its multiannual organization. The definition of clear priorities 
will serve to rationalize this cooperation in the long term. 
Article 2 
Definitions 
The following definitions shall apply for the purposes of the Sherlock programme: 
Identity documents: documents issued by Member States and non-member 
countries enabling their holders to prove their identity and cross external borders; 
Training: organization of seminars focusing on theoretical and practical 
understanding of the security of identity documents; 
Exchange: period spent by an official in a Member State other than his own for 
the purpose of improving his knowledge of control techniques through first-hand 
experience; 
Studies: design and dissemination of teaching material for combating of forged 
identity documents. 
SECTION H: STRUCTURE 
Article 3 
Training 
1. The main component of the Sherlock programme shall be following annual 
programmes: 
basic training seminar for instructors, 
further training seminar for recognized specialists on the production of 
documents. 
2. The seminars are intended for officials of the Member States. However, seminars 
specifically open to officials of non-member countries may also be held . 
Article 4 
Exchanges 
The Sherlock programme shall also comprise exchanges of officials both of the Member 
States and of non-member countries. Exchanges shall take the form in particular of work 
placements of limited duration within the national administrative departments responsible 
for checking identity documents. 
Article 5 
Study and research 
1. The Sherlock programme shall œmprise the design, production and dissemination 
of teaching material in the Member States and the associated States. 
2. Ways of improving the circulation of information œncerning the fraudulent use 
of forged identity documents may also be a matter for study and research. 
SECTION Hfc FINANCIAL PROVISIONS 
Article 6 
Financing criteria 
To qualify for Community finance, projects must be of demonstrable interest to the 
European Union and involve at least three Member States. 
Projects designed to increase cooperation with the associated States must involve at least 
two Member States and three associated States. 
Article 7 
Financial control 
The financing decisions and the contracts arising therefrom shall provide for monitoring 
and financial control by the Commission and audits by the Court of Auditors. 
Article 8 
Level of Community finance 
1. All types of expenditure which are directly chargeable to the implementation of 
the measure and have been incurred over a specific, contractually defined period 
shall be eligible. 
2. The proportion of financial support from the Community shall not exceed 60% of 
the total cost of the programme save in exceptional cases where, subject to the 
procedures laid down in Section 4 of this joint action, it shall not exceed 80%. 
3. Translation and interpreting costs, confuting costs and expenditure on durables 
or consumables shall not be considered unless they are essential for the realization 
of the project and shall be financed only up to a limit of 50% of the grant, or 
80% in cases where the nature of the project makes them indispensable. 
10 
4. Expenditure relating to premises, collective facilities and the salaries of officials 
of the State and public bodies shall be eligible only if it corresponds to irregular 
postings and tasks, specifically connected with the implementation of the project. 
Article 9 
Rules of procedure 
1. Measures incorporated in the programme and financed by the budget of the 
Communities shall be managed by the Commission in conformity with the 
Financial Regulation of 21 December 1977 applicable to the general budget of the 
European Communities, as last amended by Regulation No 2335/95 of 
18 September 1995. 
2. When presenting the financing proposals, the Commission shall take account of 
the principles of sound financial management and in particular of economy and 
cost-effectiveness as required by Article 2 of the Financial Regulation. 
MANAGEMENT AND MONITORING 
Article 10 
Devising of programme 
1. The Commission shall be responsible for managing and monitoring the 
programme and shall take such measures as are necessary to this effect. 
2. The Commission shall draw up a draft annual programme comprising a 
breakdown of the appropriations available and based on thematic priorities 
corresponding to the structure and objectives of the Sherlock programme. 
To this effect, the Commission shall scrutinize the projects submitted to it in the 
lirrht rvf thf* iriWnwnna rritfrïîv light of the following criteria 
the innovative character of the proposed measure; 
the urgency of the need for the initiative as a way of improving the 
security of documents; 
the overall consistency of the programme. 
Article 11 
Implementation 
1. The Commission shall be assisted by a committee consisting of a representative 
of each Member State and chaired by a representative of the Commission. The 
latter shall submit to the Committee the draft annual programme referred to in 
Article 10 of this joint action. The Committee shall deliver its opinion within a 
time limit set by the Chairman according to the level of urgency. The opinion 
shall be delivered by qualified majority as laid down in the second subparagraph 
of Article K.4(3) of the Treaty on European Union. The Chairman shall not vote. 
11 
The Commission shall adopt measures, which shall be immediately applicable. 
However, should these measures not be consistent with the opinion delivered by 
the committee, they shall be communicated by the Commission to the Council 
forthwith. In such an event, the Commission may defer the application of the 
measures it has adopted for a period of not more than one month from the date 
of its communication to the Council. 
The Council, acting by a qualified majority, may then take an alternative decision 
within the period referred to in the foregoing subparagraph. 
SECTION V: FINAL PROVISIONS 
Article 12 
Evaluation 
Each year, the Commission shall undertake an assessment of the measures taken during 
the previous year and shall address a report to Parliament and the Council. 
Article 13 
This Joint Action shall enter into force on the day of its publication in the Official 
Journal. 
Done at Brussels, 
12 
Financial statement 
Item B5-800: Cooperation in the fields of justice and home affairs. The commitment 
appropriations have been entered in Chapter BO-40. 
1. TITLE OF OPERATION 
Joint action on a programme of training, exchanges and cooperation in the field 
of the security of identity documents (to be known as the "Sherlock programme"). 
2. BUDGET HEADING INVOLVED 
B5-800: Cooperation in the fields of justice and home affairs, more especially 
fields covered by Article KT(2) and (3) of the TEU. 
3. LEGAL BASIS 
Article K3(2) of the Treaty on European Union. 
4. DESCRIPTION OF OPERATION 
4.1 General objective 
Greater security of identity documents can be seen as a priority area for the type 
of cooperation provided for in Title VI of the TEU, and more especially for 
enhancing the effectiveness of checks at the Union's external borders. The 
effectiveness of control work depends not only on information channels such as 
the Fraud Bulletin, the Authentic Documents Manual and the Encoded Document 
Reference System but above all on the training of officials working in this area, 
especially where it involves an increases in exchanges between Member States 
and greater familiarity with the techniques, procedures and implements used. Two 
seminars intended for specialists to share their own experience have already taken 
place. The second, held in 1995, was charged to the Community budget under 
Article K.8 of the TEU. 
The general aim of the action, based as it is on the implementation of a 
multiannual programme, is to extend cooperation in this field, rationalize 
initiatives by coordinating them around clear priorities and, by making this an 
ongoing process, ensure that the results have an enduring impact. 
4.2 Period covered 
The action covers a period of five years from 1996. 
5. CLASSIFICATION OF EXPENDITURE 
NCE/DA 
13 
6. TYPE OF EXPENDITURE 
Grants (of up to 80%) for co-financing with other public or private sector sources. 
7. FINANCIAL IMPACT 
7.1 Method of calculating total cost of operation 
The grants will cover the following: 
training; 
exchange and work placement programme; 
studies and research, dissemination of information 
It is anticipated that, subject to the annual budgetary procedure, an indicative 
financial package of ECU 5 million will be set aside for this programme for the 
period 1996-2000, in accordance with the timetable set out at 7.2. 
The annual amounts, calculated on the basis of similar actions already carried out 
(including the Karolus and Mattheus programmes) or actions in progress, are as 
follows: 
- 1996: - training: *seminar for the training of instructors: 30 participants (2 
x 15 Member States), duration 15 days (cost per trainee: 
ECU 6300): 
ECU 190 000 
•basic training seminar for Central and Eastern European 
associated countries (7 States) in conjunction with 3 
Member States: 20 participants (2 per State), duration 10 
days (cost per trainee: ECU 4200): ECU 84 000 rounded up 
to: 
ECU 90 000 
- studies and research, dissemination of information (design of teaching 
material, production of documents): 
ECU 120 000 
- per year for the period 1997-98: 
- training: *seminar for the training of instructors: 30 participants (2 x 15 
Member States), duration 15 days (cost per trainee: ECU 6300): 
ECU 190 000 
•further training seminar (15 days, 1 participant per Member State, 
cost ECU 6300): ECU 94 500 rounded up to: 
ECU 95 000 
•basic training seminar for Central and Eastern European 
associated countries (7 States) in conjunction with 3 Member 
14 
States: 20 participants (2 per State), duration 10 days (cost per 
trainee: ECU 4200): ECU 84 000 rounded up to: 
ECU 90 000 
•seminar for the training of instructors from Central and Eastern 
European associated countries (7 States) in conjunction with 3 
Member States: 20 participants (2 per State), duration 10 days (cost 
per trainee: ECU 4200): ECU 84 000 rounded up to: 
ECU 90 000 
- exchanges: •S-day exchanges (cost per trainee ECU 2000) for 150 officials 
from Member States: 
ECU 300 000 
•5-day exchanges (cost per trainee ECU 2000) for 50 officials 
from associated non-member countries: 
ECU 100 000 
•other exchanges (visits to production workshops, research 
laboratories etc): 
ECU 60 000 (lump sum) 
- studies and research, dissemination of information: 
ECU 75 000 
- per year for me period 1999/2000: 
- training: •seminar for the training of instructors: 30 participants (2x15 
Member States), duration 15 days (cost per trainee: ECU 6300): 
ECU 190 000 
•further training seminar (15 days, 1 participant per Member State, 
cost ECU 6300): ECU 94 500 rounded up to: 
ECU 95 000 
•basic training seminar for Central and Eastern European 
associated countries (7 States) in conjunction with 3 Member 
States: 20 participants (2 per State), duration 10 days (cost per 
trainee: ECU 4200): ECU 84 000 rounded up to: 
ECU 90 000 
•seminar for the training of instructors from Central and Eastern 
European associated countries (7 States) in conjunction with 3 
Member States: 20 participants (2 per State), duration 10 days (cost 
per trainee: ECU 4200): ECU 84 000 rounded up to: 
ECU 90 000 
- exchanges: •S-day exchanges (cost per trainee ECU 2000) for 150 officials 
from Member States: 
ECU 300 000 
15 
•5-day exchanges (cost per trainee ECU 2000) for 100 officials 
from associated non-member countries: 
ECU 200 000 
•other exchanges (visits to production workshops, research 
laboratories etc): 
ECU 100 000 (lump sum) 
7.2 - studies and research, dissemination of information: 
Itemized breakdown of cost ECU 235 000 
AC in ECU millions 
(at current prices) 
Breakdown 
Training (seminars) 
Training (exchanges) 
Other exchanges 
Studies, research, 
dissemination of 
information 
TOTAL 1996 
0.28 
0.12 
0.4 1997 
0.465 
0.4 
0.06 
0.075 
1 1998 
0.465 
0.4 
0.06 
0.075 
1 1999 
0.465 
0.5 
0.1 
0.235 
1.3 2000 
0.465 
0.5 
0.1 
0.235 
1.3 Total 
2.14 
1.8 
0.32 
0.74 
5 
7.3 Indicative schedule of appropriations 
AC in ECU millions 
Appropriations for 
commitment 
Appropriations for 
payment 
1996 
1997 
1998 
1999 
2000 
Total 1996 
0.4 1997 
1 1998 
1 1999 
1.3 2000 
1.3 2001 Total 
5 
0.1 
0.1 0.3 
0.7 
1 0.3 
0.7 
1 0.3 
1 
1.3 0.3 
1 
1.3 0.3 
0.3 0.4 
1 
1 
1.3 
1.3 
5 
Indicative financial package for the period 1996-2000: ECU 5 million. The programme 
is scheduled to take place in three phases. 
16 
For 1996, since initial expenditure cannot be committed before the last third of the year, 
the annual amount has been calculated on the basis of what, given the necessary 
preparatory work, could actually be organized. 
For 1997-98: an initial phase designed to have an appreciable knock-on effect on the 
national training programmes of the Member States, which will have instructors trained 
at Union level and jointly devised teaching material at their disposal. 
For 1999-2000: the expected results of the knock-on effect on the national programmes 
will generate new requirements at Union level, making it possible to amplify and expand 
the operation on the basis of a mid-way assessment (end 1998) of a more detailed nature 
than the annual report. 
8. FRAUD PREVENTION MEASURES; RESULTS OF MEASURES TAKEN 
Verification of grants or receipt of payments and preparatory, feasibility and assessment 
studies is carried out by the Commission before payment is made, taking into account 
contractual obligations, economic principles and principles of sound financial or general 
management. Anti-fraud provisions (checks, delivery of reports, etc.) are included in all 
the agreements or contracts concluded between the Commission and the recipients of the 
payments. 
9. EIJEMENTS OF <X)ST-EFFEOTVENESS ANALYSIS 
9.1 Specific and quantifiable objectives; target population 
- Specific objectives: 
Under the general objective referred to at 4.1, the Commission will devote special 
attention to the following: 
* Ongoing training seminars in the field of document security in three areas 
- mstnictor-tmining 
- further training for recognized specialists 
- basic training for officials from certain Central and Eastern European countries 
The underlying aim here is to harmonize the training of the officials concerned by 
focusing on specific levels: Union level for the training of instructors and advanced 
training and Member-State level for the relaying of training to the greatest possible 
number of national officials. Likewise in a spirit of harmonization and in anticipation of 
their possible accession, training will also be organized at Union level for officials from 
Central and Eastern European countries. 
* In conjunction with the foregoing objective, teaching material will be developed which 
can subsequently be used in training programmes in the Member States, thereby 
capitalizing on the training provided at Union level, producing economies of scale and 
adding a further element of harmony to the training provided at Member State level. 
17 
* Research to improve ways and means of disseminating information relating to the 
recognition of documents and forgeries 
The latter objective will help to avoid duplication of research efforts in a field where the 
exchange of information between Member States is of primordial importance to the 
establishment of complete freedom of movement. 
- Target population: 
Officials responsible for designing, issuing or checking documents. 
Officials responsible for training, especially devising and implementing training schemes 
in the departments concerned and in particular for devising instmctor-tmining. 
9.2 Justification for action 
Cooperation between the Member States as defined by Title VI of the TEU, with which 
the Commission is fully associated, covers matters which the Member States regard as 
being of common interest. Document security is one such matter, being particularly 
important as regards immigration control at the external borders. Cooperation between 
government departments of the Member States at Union level therefore supplements the 
efforts made by those departments in their own field of competence. The high-speed 
exchange of information and the need to work in real time therefore require officials to 
have an increasingly detailed knowledge of procedures in other Member States. The 
Sherlock programme, which, as shown in the above presentation of the specific objectives 
of the programme, complies totally with the principle of subsidiarity as regards the level 
at which the measures are located, is thus a reflection of this need. 
Two principles will underlie the selection of projects: 
adherence to the structure of the programme as defined in Section II of the joint 
action, which requires measures to be repeated regularly as a way of ensuring 
long-term effectiveness and producing a knock-on effect in the Member States; 
compliance with the criteria set out in Article 10 of the joint action which, in 
addition to the consistency of the programme, concern innovation (e.g. 
technological developments) or need for urgent action (new types of documents, 
emergence of new sources of forgeries). 
9.3 Monitoring and evaluation 
Two types of indicators will be used to measure the attainment of objectives: 
number of trainee days recorded at Union level as regards both seminars and 
exchanges; 
number of trainee days at Member State level using instructors trained under the 
Sherlock programme and teaching material produced under the programme. 
These quantitative indicators will be supplemented by more qualitative evaluations 
measuring the impact of the training on trained officials (panel with evaluation at 
successive intervals after training). 
18 
The annual reports will be supplemented by a more detailed instruction report after the 
first three years of the programme's implementation. 
10. ADMINISTRATIVE EXPENDITURE 
(Part A of Section HI of me General Budget) 
The effective mobilization of the necessary human resources will be determined by the 
Commission's annual decision on allocation of resources, taking account of the staff 
numbers and additional amounts agreed by the budget authority. 
It should be stressed that this joint action aims to manage commitment appropriations of 
around ECU 5 million per year and that, in order to ensure "sound financial management" 
of the operating appropriations, it will be necessary to make available administrative 
appropriations corresponding to the additional work flowing from implementation of the 
joint action over the period in question. 
Supplementary resources have been estimated on the basis of human resource costs 
observed for Title VI pilot training projects run under the 1995 budget. 
10.1 Effect on number of posts 
Types of work 
Officials or 
temporary 
staff A 
B 
C 
Other resources 
Total Staff required to manage 
the project 
Permanent 
1 
1/2 
1/2 
2 Temporary Of which 
use of 
resources 
existing within 
DG or Service 
concerned to be 
financed 
from 
additional 
funds 
1 
1/2 
1/2 
2 Period 
5 years 
from 
September 
1996 
19 
10.2 Overall financial effect of additional human resources 
Amount Method of calculation 
Officials 765 000 (ECU 92 000 + 33 000 + 28 000) x 5 years 
Temporary staff NB: ace. scales supplied by DG IX 
Other resources 
1 Total [765 000 | == | 
The amounts express the total cost of additional posts jor the total duration oj the action. 
10.3 Increase of other expenditure resulting from the project 
Budget item Amount Method of calculation 
(Number and title) 
A 2510 12 000 Missions: 20 days/official: 20 x ECU 
120 x 5 years 
50 000 Journeys: 10 annual journeys x ECU 
1000 x 5 years 
156 375 Committee provided for in Article 
11: 15 people x ECU 695 x 3 
meetings x 5 years 
80 400 Experts: 20 days/experts/year x ECU 
804 x 5 years 
T0tal "298775 
The amounts correspond to the toted expenditure oj the action 
The purpose of the missions is to evaluate and coordinate measures taken to implement the 
programme and to monitor the project at first hand. The cost of these missions is calculated 
at ECU 62 000. 
20 
ISSN 0254-1475 
COM(96) 297 final 
DOCUMENTS 
EN 06 11 
Catalogue number : CB-CO-96-306-EN-C 
ISBN 92-78-05743-6 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
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