COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(93) 503 final 
Brussels, 14 October 1993 
Proposal for a 
COUNCIL DECISION 
on the conclusion of a Convention between the 
European Economic Community and the 
United Nations Relief and Works Agency 
for Palestine Refugees (UNRWA) concerning aid to refugees 
in the countries of the Near East 
(presented by the Commission) 
*-
EXPLANATORY MEMORANDUM 
The Commission nw*de proposals to the Council in May 1993*) for a 
mandate to open negotiations for the renewal of the Convention between 
the EEC and UNRWA which has expired on 31 December 1992. 
In accordance with the decision of the General Affairs Council of 12 
July 1993, the Cosamission negotiated on 23 - 09 - 1993 with UNRWA the 
text of the proposed new Convention for the period 1993 until 1995. 
As compared with the last Convention the main changes in the poposed 
text, in conformity with the directives for negotiation, are as follow: 
The cash contribution towards the cost of UNRWA's education and health 
programmes (including the supplementary feeding programme) shall be ecu 
30 million for 1993, ecu 31 million for 1994 and ecu 32 million for 
1995. In the framework of the health programme UNRWA will introduce a 
maternal health and family planning programme. 
The financial implications of the action proposed are set out in the 
financial annex. 
In addition to this the "Fiche financière" and an overview over 
expenditure under the last Convention are annexed to this document. 
*) SEC(93)810 
Proposal for a 
COUNCIL DECISION 
on the conclusion of the Convention between the 
European Economic Community and the 
United Nations Relief and Works Agency 
for Palestine Refugees (UNRWA) concerning aid to refugees 
in the countries of the Near East 
THE COUNCIL OF THE EUROPEAN COMMUNITIES, 
Having regard co the Treaty establishing the European Community, and in 
particular Artxc «• 235 thereof, 
Having regard to ^he proposal from the Commission, 
Having regard to the Opinion of the European Parliament*) 
Whereas the Convention concluded wirh the United Nations Relief and 
Works Agency for Palestine Refugees (UNRWA) concerning aid to refugees 
in the countries of the Near East, approved on 23 April 1990^), expired 
on 31 December 1992; 
Whereas the Community assistance to UNRWA fosters the campaign against 
poverty in the developing countries and thereby contributes to a 
sustainable economic and social d€>velopment of the concerned population 
and the host: countries they live in. 
Whereas a nevr Convention should be concluded, with "JNRVJA so that the 
Community's aid can continue to be provided as part of a comprehensive 
operation offering a measure of continuity; 
Whereas continued support of UNRWA operations would be likely to 
contribute co the; attainment of the Community objectives. 
Whereas the Treaty does not provide, for the adoption of this Decision, 
powers other than those of Article 235, 
HAS DECIDED AS FOLLOWS: 
1) Opinion delivered on 
2) OJ No L 118, 9.5.1990 
Article 1 
The Convention between the European Community and the United Nations 
Relief and Works Agency for Palestine Refugees (UNRWA) concerning aid to 
refugees in the countries of the Near East is hereby approved on behalf 
of the Community. 
The text of the Convention is attached to this Decision. 
Article 2 
The execution of the Community programme of food aid to UNRWA shall be 
governed by the procedure defined in Regulation (EEC) No 3972/863) or, 
if appropriate by any regulation on food aid repealing and replacing it. 
Article 3 
The President of the Council is hereby authorized to designate the 
persons empowered to sign the Convention in order to bind the Community. 
Done at For the Council 
The President 
For the Secretary-General 
3) OJ N° L 370 of 30.12.86 pp.1 
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CONVENTION 
BETWEEN THE EUROPEAN ECONOMIC COMMUNITY 
AND THE UNITED NATIONS RELIEF AND WORKS AGENCY 
FOR PALESTINE REFUGEES (UNRWA) 
CONCERNING AID TO REFUGEES 
IN THE COUNTRIES OF THE NEAR EAST 
Article 1 
Desirous of continuing its aid to Palestine Refugees, the European 
Economic Community (hereinafter referred to as "the Community") hereby 
concludes this Convention with the United Nations Relief and Works 
Agency for Palestine Refugees (hereinafter referred to as "UNRWA") in 
order to confirm its commitment to a programme of aid to UNRWA. This 
aid shall take the form of contributions in kind or in cash extending 
over a three-year period for use under the UNRWA education, health and 
feeding programmes. 
Article 2 
1. The Community shall pay to UNRWA annually a cash contribution towards 
the cost of the education and health programmes, including the cash 
component of the supplementary feeding programme. The size of this 
contribution shall be ECU 24.2 million in 1993, ECU 25.4 million in 1994 
and ECU 26.7 million in 1995 for the education programme; ECU 5.0 
million in 1993, ECU 4.9 million in 1994 and ECU 4.7 million in 1995 for 
the health programme; ECU 0.8 million in 1993, ECU 0.7 million in 1994 
and ECU 0.6 million in 1995 for the cash component of the supplementary 
feeding programme. The distribution of these amounts will be amenable to 
adjustment each year depending on evidence of real needs. 
2. UNRWA shall send the Community each year a report on the use made of 
the Community contribution. UNRWA shall also provide the Community with 
all the documentation relating to the execution of the education and 
health programmes, including the supplementary feeding programme; the 
detailed accounts of expenditure; and budgetary estimates of future 
expenditure and the yearly statistics of the UNRWA Departments of 
Education and Health. 
3. UNRWA shall inform the Community of any significant changes planned 
for the education or health services provided by the Agency. 
4. In the event of any significant changes in the education or health 
services provided by UNRWA during the period of validity of this 
Convention, the Community reserves the right to give its approveil to the 
use made of the funds it is making available to UNRWA. 
ARTICLE 3 
Aid for the feeding programmes 
1. The community shall contribute in kind or in cash to the various 
UNRWA feeding programmes. 
2. The size and form of the Community contribution to these programmes 
and the conditions on which aid is granted shall be determined by the 
Community each year in the framework of its food aid programmes, on the 
basis of the requests submitted by UNRWA, with the exception of the cash 
component of the supplementary feeding programme (included within the 
health programme) which will amount to ECU 0.8 million in 1993, ECU 0.7 
million in 1994 and ECU 0.6 million in 1995, subject to yearly 
adjustments as specified in Article 2(1). 
3. The Community shall pay the following contributions in cash to UNRWA 
for these feeding programmes, 
- a sum as a contribution to the operating costs of the 
supplementary feeding programme, as indicated, 
- a sum for the purchase of products in developing countries or on 
the local market in the event of an emergency or non­
availability on the Community market or in other exceptional 
cases after agreement by the Community, 
- a specific sum per tonne of each product received or purchased 
by UNRWA under the programme for distribution of rations to 
special hardship cases and the feeding in training centres 
programme, as a contribution to transport and distribution 
costs. 
4. UNRWA shall send the Community, in April of each year, a report on 
the operation of the feeding programmes, indicating in particular the 
number, category and location of recipients and the services provided, 
the cost of the programmes and the use made of Community contributions 
in kind and in cash. 
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ARTICLE 4 
Visits 
UNRWA will facilitate, to the extent of its capabilities, the visit of 
the representatives of the European Community on the spot. 
ARTICLE 5 
Financial control 
UNRWA shall; 
1. keep financial and accounting documents concerning the activities 
financed by the EEC, and, 
2. make available to the competent bodies of the EEC, upon request, all 
relevant financial information including statements of accounts 
concerning 
the programme/project, whether they are executed by UNRWA or by 
subcontract ing. 
In conformity with the Financial Regulation of the European Community, 
the Commission and the European Court of Auditors may undertake, 
including on the spot, checks related to the operations financed by the 
European Community. 
ARTICLE 6 
Any question arising out of this Convention shall be settled by 
consultation between the two parties at the request of either party. 
ARTICLE 7 
Duration of the Convention 
This Convention shall cover a period of three calendar years 1993, 1994, 
1995. 
ARTICLE 8 
This Convention is drawn up in duplicate in the Danish, Dutch, English, 
French, German, Greek, Italian, Portuguese and Spanish languages, each 
version being equally authentic. 
Done at Brussels, 
For 
the United Nations Relief and 
Works Agency for Palestine 
Refugees (UNRWA) on behalf 
of the Council 
of the European Communities 
-*-
Annex 1/Part 1 
Heading B7407: Aid to the United Nations Relief and Works Agency for 
Palestine Refugees in the Near East 
appropriations 
authorized 1993 
commitments payments 
30.0 30.0 appropriations 
requested 1994 
com.s pay.s 
31.0 31.0 % variation 
com.s pay.s 
3.3% 3.3% 
1. Title of operation 
Aid to the United Nations Relief and Works Agency for Palestine Refugees 
in the Near East. 
2. Budget heading involved 
Article B7-407 
3. Legal basis 
Eighth Convention between the EEC and UNRWA to be signed first quarter of 
1993. 
4. Description of operation 
4.1 Specific objectives of the operation 
Community cash contribution to the implementation of the United 
Mations Relief and Works Agency for Palestine Refugees (UNRWA) 
supplementary food aid, education and health programmes. Measures 
include distributing warn» midday nvB&ln, milk for children and 
supplementary rations for pregnant women, nursing mothers and victims 
of tuberculosis. 
The community contribution to the UNRWA education programme will help 
provide elementary and preparatory level schooling for more than 
350 000 children of Palestine refugees. 
g-
The Community contribution to the health programme will help UNRWA to 
develop its health education and family planning activities, to 
establish family planning centres, finance a programme to help the 
handicapped in a non-hospital environment and improve its diagnosis 
and guidance infrastructure. 
4.2 Duration 
The Commission is shortly to sign the 8th Convention between the EEC 
and UNRWA for the period 1993-95. 
4.3 Target population 
Those benefiting from these measures are located in the five areas 
covered by UNRWA activities: Jordan, Syria, the Lebanon and the 
Occupied Territories of the West Bank and the Gaza Strip. 
5. Classification of expenditure or revenue 
- Compulsory expenditure 
Differentiated appropriation 
- Type of revenue: none 
6. Type of expenditure or revenue 
100% grant 
- Grant for joint financing with other sources in the public and/or 
private sector: none 
- Interest subsidy: none 
Other: none 
- Should the operation prove an economic success, is there provision 
for all or part of the Community contribution to be reimbursed? No. 
- Will the proposed operation cause any change in the level of revenue? 
If SO/ what sort of change and what type of revenue is involved? No. 
*> 
7. Financial impact 
7.1 Method of calculating total cost of operation for 1994 budget year 
The following amounts have been allocated to finance the UNRWA 
education and health programmes under the seventh Convention between 
the EEC and UNRWA: ECU 22 million in 1990, ECU 24 million in 1991 and 
ECU 26 million in 1992. The eighth Convention provides for 
expenditure of ECU 30 million in 1993 and ECU 31 million in 1994. 
These contributions will not be an additional burden on the Community 
budget as they will replace the contributions in cash and in kind to 
UNRWA*s supplementary food aid programme. 
7.2 Breakdown by area of activity 
AREA OF 93 BUDG 
ACTIVITY 
Education 24.2 
Health 5.0 
Food programme 0.8 
TOTAL 30 94 PDB 
25.4 
4.9 
0.7 
31 VARIATION 
IN % 
+ 5% 
- 2% 
- 13% 
3.3% 
7.3 Operation expenditure for studies, experts' meetings, etc. included 
in part B. 
TYPE OF 
EXPENDITURE 
Studies 
Experts' meetings 
Conference and 
congress 
Information and 
publications 
TOTAL 
No of man/years 93 BUDGET 
none 94 PDB 
none VARIATION 
IN % 
none 
A b'-
7.4 Indicative schedule of commitment appropriations 
Aggregate 
situation 
end 1992 
(1) 
536 Budget 
1993 
30 PDB 
1994 
31 INDICATIVE PROGRAMMING 
1995 
32 1996 
33 1997 
34 1998 
and 
there­
after 
token 
entry T 
O 
T 
A 
L 
696 
(1) Including provision under 1991 and 1992 mini-budgets charged under 
sub-section B8. 
- estimated amount needed: 
- period of application: ECU million 
8. What anti-fraud measures are planned in the proponed operation? 
Normal Commission controls. 
Under Article 3 of the Convention, UNRWA will submit an annual report to 
the Commission on the operation of the food programmes, in particular 
with regard to their cost and the use made of Community contributions in 
cash and in kind. 
Under Articles 5, UNRWA will provides all facilities for any Commission 
staff appointed to monitor the use of the Community aid. Controls will 
be carried out primarily by Commission delegates in the countries 
concerned. 
M-
9. Elements of cost-effectiveness analysis 
9.1 Objectives 
Specific objective(s): connections with broader objectives and other 
measures proposed in the indicative financial programming. 
The operation is intended to contribute to the financing of food aid, 
support, education and health programmes of the United Nations Relief 
and Works Agency for Palestine Refugees for about 2.2 million people 
in five areas where the Agency is active: Jordan, Syria, the Lebanon, 
and the West Bank and Gaza Strip occupied by Israel. 
The Community contribution to the health programme will help UNRWA to 
develop its health education and family planning operations. 
More general objective: 
Developing cooperation with the UNRWA to meet the needs of refugees 
and improve education and health standards. 
9.2 Grounds for the operation 
- Cost: ECU 31 million in 1994 
The costs reflect the real needs established by the UNRWA (which has 
been mandated by the UN to implement education and health programmes 
for Palestine refugees in the Middle East) and are the basis of the 
Convention signed by the EEC and the UNRWA. 
The Community contribution to the UNRWA under the abovementioned 
Convention represents around 20% of the total cost of the UNRWA 
programme for refugees and is for the purpose of improving health and 
education standards for 2 200 000 refugees in the Middle East. 
- spin-off effect (impact beyond the specific objectives): 
Humanitarian measures likely to contribute to the economic and 
social stability of the region. 
- multiplier effect: ability to mobilize other forms of finance. 
At-
9.3 Monitoring and evaluation of the operation 
- Performance indicators selected: these are established in the UNRWA 
Convention. 
- Details and frequency of planned evaluation: UNRWA annual reports 
- Assessment of operation results: improved situation for the? 
refugees. 
9.4 Coherence with financial programming 
- Is the operation incorporated in the financial programming of the DG 
for the years concerned? Yes. 
- To which broader objective defined in the DG's financial programming 
does the objective of the proposed operation correspond? 
Humanitarian measures. 
- What are the main factors of uncertainty that could affect the 
specific results of the operation? None. 
10 Administrative expenditure (part A of the Budget) 
This section will be sent to DG XIX and DG IX; DG IX will then forward 
it to DG XIX together with its opinion. 
10.1 Will the proposed operation involve an increase in the number of 
Commission staff? If so, how many? 
10.2 Indicate the amount of staff and administrative expenditure 
involved in the proposed operation. Explain the method of 
calculation. 
- 4~6~ 
Annex 2 
Expenditure under past Convention. 
Table 1 
Estimated EEC contributions under the Convention to UNRWA's regular 
programmes in 1990, 1991 and 1992 in million ecus 
1990 1991 1992 
Cash for Education Programme 21.0 22.0 23.0 
Cash for Health Programme 1.0 2.0 3.0 
Cash contribution for 
Supplementary Feeding Programme 3.4 2.7 2.0 
Food products 
(in value, at world prices, 
delivered free at destination) 14.8 16.5 16.5 
Distribution costs 0.5 1.0 0.6 
Total 40.7 44.2 45.1 
Table 2: 
Estimated EEC contributions to UNRWA's extraordinary programmes in 
1990, 1991 and 1992 in million ecus (outside the Convention) 
EMLOT 1990 1991 1992 
(Extraordinary measures in Lebanon and 
the Occupied Territory of the West Bank 0.87 12.0 1.4 
and Gaza) 
Distribution costs 1.8 0.05 
Total 0.87 13.8 1.45 
A i, 
Table 3 
Summary of Tables 1 and 2 
Estimated EEC contributions to UNRWA's food aid programmes 
regular programme under the Convention (Table I) 
extraordinary measures (Table II) 
(in million ecus for 1990, 1991 and 1992) 
1990 1991 1992 
Cash contribution for 
supplementary feeding programme 
Food Products 
(in value, at world prices, 
delivered free at destination) 
Distribution costs 3.4 
14.8 
0.5 2.7 
16.5 
1.0 2.0 
16.5 
0.6 
EMLOT 
(Extraordinary measures in Lebanon and 
the Occupied Territory of the West Bank 
and Gaza) 
Distribution costs 12.0 
1.8 1.4 
0.05 
18.7 34.0 20.551) 
1) The lower amount of 20.55 in 1992 can be explained by the fact that 
the Community was not able to satisfy UNRWA's extraordinary food aid 
requirements which were e»qual to those in 1991 and presumably wil] 
be similar in subsequent years. 
A% 
FINANCIAL ANNEX 
1. Relevant budgetary lines (Budget 1993) 
Food aid programme : Budgetary lines within Chapter 7-20 
Cash contributions : B7-407: Aid to the United Nations Relief and 
Works Agency for Palestine Refugees in the Near East 
2• Description of Action 
Establishment of a new Convention between the EEC and UNRWA for the 
allocation of food aid in kind and in cash for the Agency's feeding 
programmes and a cash contribution for the UNRWA education, health 
and supplementary feeding programmes. 
3. Legal Base 
Article 235 of the Treaty establishing the European Economic 
Community. Regulations (EEC) no 3972/86 and no 1930/90. 
4. Financial implications 
The amounts proposed towards the financing of UNRWA's Education and 
Health and Supplementary Feeding programmes under the eighth EC-
UNRWA Convention are: ecu 30 million for 1993, ecu 31 million for 
1994, ecu 32 million for 1995 in accordance with the General Affairs 
Council of 12 July 1993. 
The size and content of the aid to UNRWA for the feeding programmes 
will be decided, as in the past, following the procedure defined in 
Regulations (EEC) no 3972/861) and no 1930/902). 
1) OJ N° I. 370/86 of 30.12.86 pp.1-4 
2) OJ 174/90 of 7.7.1990 pp.6-7 
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ISSN 0254-1475 
COM(93) 503 final 
DOCUMENTS 
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ISBN 92-77-59863-8 
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