COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 25.07.1996 
COM(96) 397 final 
COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
Action programme to promote milk consumption in the Community 
and expand the markets for milk and milk products: 1996/97 milk year 

Summary 
1. Council Regulation (EEC) No 2073/92 on promoting consumption in the 
Community and expanding the markets for milk and milk products states that the 
Commission is to notify to the Council each year its proposed programme of 
measures for the following marketing year. 
2. Commission Regulation (EC) No 3582/93 on detailed rules for application of 
Regulation (EEC) No 2073/92 stipulates that the programme is to specify one or 
more subjects to be covered by these measures, a breakdown of the amount 
available for financing the measures and a timetable for consideration and 
selection of the applications for financing presented to the Commission. 
3. This communication pertains to the programme for the 1996/97 milk year. 
As in previous years, the Commission has decided to restrict financing to general 
action covering milk and/or aji milk products. The actual subjects to be covered 
by the programme are primarily the nutritional qualities and modern image of the 
product. The measures selected are thus those indicated at Article l(2)(a) and (c) 
of Regulation (EEC) No 2073/92. 
As regards allocation of the amounts available for funding the action proposed, 
the Commission has chosen an approach based on previous experience and in 
particular an assessment of the results of programmes carried out during the 
1994/95 campaign. 
Lastly the Commission sets out the preference rules that may be applied to 
applications. 
î 
COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
Action programme to promote milk consumption in the Community 
and expand the markets for milk and milk products: 1996/97 milk year 
I. SUBJECT 
1. Article 1(2) of Council Regulation (EEC) No 2073/921 lists in full the measures 
that may be adopted by the Commission in order to promote milk consumption 
in the Community and expand the markets in milk and milk products. 
2. Article 2 of the Regulation requires the Commission to notify the Council before 
1 April of the action programme it plans for the forthcoming marketing year. 
3. Article 2 of Commission Regulation (EC) No 3582/932 requires the programme 
to specify a choice of one or more of the measures listed in Regulation (EEC) 
No 2703/92, indicate the subjects to be covered by action under these measures, 
give a breakdown of the amount available for financing action under the measures 
and set a timetable for the procedures for consideration and selection of the 
applications for financing. 
4. This communication is in four parts: 
summary of the results of previous campaigns, 
strategy for the 1996/97 marketing year; 
presentation of proposals, 
procedure for processing and selecting applications. 
n. SUMMARY OF THE RESULTS OF THE 1994/95 CAMPAIGN 
The latest reports available relate to the 1994/95 campaign, since the one for 1995/96 
began only in May/June 1996. 
In 1994/95, five countries (Germany, Ireland, Greece, Italy and the United Kingdom) used 
the traditional media of the press and television. In the United Kingdom, for example, the 
campaign, which employed two commercials and the press in its media support, was 
highly successful. Milk consumption grew by 8% among infants aged up to two years and 
by 5% for children aged between 2 and 4 years. Economic analysis predicts future sales 
of an extra 7.4 million litres of milk over the next two years. Awareness of the benefits 
1 OJNoL215, 30.7.1992, p. 67. 
2 OJNoL 326, 28.12.1993, p. 23. 
lev 
of milk has also increased substantially. In Germany, milk consumption increased by 
4.1% and demand from households also increased. 
Three countries (Belgium, France and Denmark) organized sporting events. Assessments 
suggest that these are an excellent way of drawing the attention of young people to milk. 
They place the product in a sporting context attractive to young people while sending a 
positive message about the benefits of milk. Several thousand active contacts were formed 
in this way and the activities were noticed in a number of daily papers and on television. 
Integrated campaigns were organized in Portugal and Spain. There can be no doubt that 
promotional campaigns helped boost the consumption of pasteurized milk, for example 
by 23% in Spain during the first nine months of 1995. The campaigns included publicity, 
public relations and activities. The 'milk and health' week in Spain attracted 84 000 
potential consumers. In Portugal, one of the three main strands was a 'milk caravan' 
which visited 31 beaches and established 44 500 active contacts. 
The scientific information made available to all the Member States by CERIN in France 
is being consulted more frequently. This database, which is updated daily, is a very 
valuable tool for information on scientific data. 
HI. STRATEGY FOR THE 1996/97 CAMPAIGN 
Action in 1996/97 must fit into a comprehensive promotion strategy based on the 
experience of previous years. 
During 1995/96, eight different kinds of programmes designed to boost consumption of 
milk and milk products and aimed principally at young people aged between 15 and 25 
are being carried out in the 15 Member States. In seven Member States (France, Ireland, 
Germany, Belgium, Spain, the Netherlands and the United Kingdom), this is a 
continuation and development of the 1994/95 campaign. Two of the new Member States 
(Sweden and Finland) have coordinated their campaign plans. 
Five of these programmes are primarily addressed to young people under 25: 
1. Press for young people: Germany and Austria (with a milk day) 
2. TV commercials: Ireland, Greece and the United Kingdom 
3. Press and television (traditional commercials): Denmark 
4. Activities: competitions and other activities for young people including sports 
sponsorship: Belgium, France, Italy and Portugal (Italy and Portugal have 
bolstered their programmes by making use of the media). 
5. Press, video, brochures and posters: publicity in the specialist (health) press and 
magazines for young people, distribution of material in schools, health and sports 
centres: Finland and Sweden 
Two types of programme aim to spread information on the nutritional qualities of milk: 
6. Information and courses targeted at two age groups: the Netherlands (12-20 and 
35-49) 
7. Upstream scientific information: France and Belgium 
The eighth programme is an integrated campaign (advertising, information, public 
relations): 
8. Integrated campaigns: Spain and Luxembourg. 
These programmes, 100% financed by the Community, are in most cases running parallel 
to national campaigns financed from 'compulsory contributions' that have replaced the co-
responsibility funds. In some Member States (Spain, Portugal, Italy and Greece) these 
contributions do not exist, hence the need to expand action closer to the market, while 
in others action can be targeted upstream and carry an essentially nutritional message. 
Great care must, however, be taken to ensure that the message transmitted is scientifically 
justified. 
It will be easily understood that whatever its apparent economic interest a single pan-
European campaign is an impossibility. A diversified strategy must therefore be 
formulated that respects the characteristics of the various geographical areas of 
consumption. 
As in previous years, for the 1996/97 campaign the measures selected must fit the 
indications given in Article l(2)(a) and (c) of Regulation (EEC) No 2073/92. 
1. Aims 
Total consumption of milk and milk products in the Community of 12, in whole-milk-
equivalent terms, ranged in 1994 from 161 kg/year per head in Portugal to 405 kg/year 
per head in Denmark. However, it should be noted that between 1990 and 1994 
consumption of milk products in whole-milk-equivalent terms in the Community fell 
except in Germany, Greece, Spain and Portugal while remaining stable in Belgium and 
Luxembourg. 
In the specific case of liquid milk, consumption per head per year has fallen very sharply 
in the three new Member States over the last decade, most notably in 1985-90. 
The main aim will be to increase total average consumption, i.e. to halt the decline in 
high-consumption Member States and boost its rise in those where consumption is low. 
Given the specific characteristics of the markets, these aims will be attainable by 
spotlighting various positive aspects of milk products, particularly their nutritional 
qualities. 
2. Targets 
As in previous years, the under-25s (without regard to income) will be the main target. 
The idea is that milk should no longer be something they are given to drink but a drink 
chosen by this fairly socially undifferentiated age group. 
Certain specific population segments considered at high nutritional risk (pregnant women, 
young children, old people, immigrants) are secondary targets to whom the nutritional 
aspect (calcium and vitamins) is relevant. 
3. Choice of subject 
As in 1994/95 and 1995/96, the proposals selected will be concerned with either or both: 
nutrition: milk and/or milk products as a healthy food providing calcium and 
vitamins, the lack of which can lead to serious deficiencies, 
a modern image for milk and the pleasure aspect: milk and/or milk products as 
perfectly adapted to current consumer trends while remaining pure and natural; 
also as a source of pleasure chiming with current values and tastes. 
Extension to milk products is permitted on condition that they are not specified, the 
products promoted will be liquid milk and/or all milk products. 
IV. MONITORING 
Since this campaign is under indirect management, the national contracting body is 
responsible for monitoring the measures envisaged in the programme (Articles 7 and 8 
of Regulation (EC) No 3582/93). To this end, the competent body will receive, with a 
view to payment, quarterly invoices accompanied by supporting documents and an interim 
report on performance of the contract along with a request for the balance accompanied 
by supporting documents, a statement summarising measures carried out and a report 
assessing the results achieved. The competent body must take the necessary measures to 
verify the accuracy of the information and documents provided and fulfilment of all 
contractual obligations, in particular by means of technical, administrative and accounting 
checks on the premises of the contracting parties and any associates they may have. 
The Commission may, if necessary, carry out accounting and on-site checks on the 
premises of the contracting parties and any associates they may have. 
V. RESOURCES FOR THE 1996797 CAMPAIGN 
The total budget of ECU 9 075 822 for 1995/96 was used as follows: 
Traditional media 67.3% of which: TV 28% 
press 29.6% 
radio 2.9% 
billboards 6.8% 
Equipment 8.1% of which: publishing 5.8% 
audio-visual 1.6% 
exhibitions 0.7% 
Sports and other sponsoring3 16.3% 
Personnel 6.3% 
Overheads 2% 
The figures prove that the guidelines given in point II 3 of the Commission 
communication on the 1995/96 campaign4 have been broadly followed. In 1996/97, 
assuming an appropriation of ECU 9 million in the 1997 budget for promotion campaigns 
in the milk sector, the appropriation under the "personnel" heading would have to be still 
further reduced (maximum 5%) so that the appropriations for other resources can be 
increased reciprocally. Assessments of previous campaigns indicate very good results for 
sports sponsorship and publicity and awareness activities. The appropriation for this 
heading in the new campaign should therefore be increased to bring it up to 20%. In 
addition, the heading "media" should be brought up to 70%. In this respect, it should be 
stressed that in future publicity or promotion activities linked to mail-order sales or sales 
by radio or television should be excluded from financing. Point-of-sale promotions should 
also be treated with caution in case commercial brands are thereby favoured. 
VI. PRESENTATION OF PROPOSALS 
Proposals must include the following sections. 
1. Specification of the aims, targets and means proposed showing how they fit into 
the general strategy set out in II above. 
2. A preliminary cost-effectiveness analysis of the proposal (as set out in the Annex 
to this notice) and an indication of how the results of the programme will be 
assessed in retrospect: 
Including milk days, seminars, point-of-sale activities and others. 
OJNoC 173, 8.7.1995, p. 5. 
POINTS m THE FINAL REPORT 
1. Findings 
Trend: 
in consumption 
in consumer attitudes and knowledge of the product from the start of the campaign. 
2. Analysis 
The qualitative and quantitative results secured from each measure: 
the impact of television publicity, 
the impact of press publicity, 
the impact of sponsorship, 
the impact of public relations, 
the impact of other measures. 
The impact analysis should also indicate any weak points in certain measures and problems 
encountered in management. 
3. Notes and conclusions 
3. A commitment to put over only positive messages and not make comparisons with 
other products. 
4. A commitment not to use publicity messages associated with the sale of products 
by mail-order and/or radio or television (tele-sales). 
5. A commitment to submit a report assessing the results of the programme prepared 
by an independent body in accordance with 2 above. 
The action proposed must of course conform with the provisions of Article 3(2) of 
Regulation (EC) No 3582/93. 
VII. PROCEDURE FOR CONSIDERING AND SELECTING APPLICATIONS 
1. By 30 September 1996 proposals must be submitted to the competent bodies in 
triplicate with a summary in English, French or German. The budget should be 
expressed in ecus. 
2. By 30 October 1996 all proposals will be forwarded to the Commission in 
duplicate accompanied by a reasoned opinion drawn up by the competent body 
This opinion will list the proposals in order of priority. 
3. The Commission will draw up the list of proposals selected and notify the 
Member States. Priority will be given to projects which: 
highlight the positive aspects ('qualities') of milk and milk products, 
respect the indicative breakdown of expenditure given in V above, in 
particular the percentages of 70% for media spending, 20% for sponsoring 
sports and other activities and 5% maximum for personnel, 
are justified by the assessment report on previous campaigns where the 
body concerned took part in those campaigns. 
Account will also be taken of the preference criteria set out in Article 5(3) of Regulation 
(EC) No 3582/93. 
vm. CONCLUSION 
The first two years of application of Regulation (EC) No 3582/93 allowed the 
development of coherent programmes of sufficient diversity to reflect the specific 
concerns of consumers. The Commission intends to pursue this approach in 1996/97 and 
will endeavour to select proposals which offer the best cost-effectiveness relationship and 
promise the most effective synergy for durable consolidation of the European market in 
milk and milk products. 
ANNEX 
COST-EFFECTIVENESS ANALYSIS 
1. Specific quantifiable aims, target population 
Specific aims: links with general aim 
Target population: distinguishing by aim if appropriate, specify the final 
beneficiaries of the spending from the Community budget and the 
intermediaries used. 
2. Grounds of proposal 
Need for spending from Community budget 
Choice of action 
* advantages over alternative action (comparative advantages) 
* analysis of similar projects mounted at Community or national 
level 
Main uncertainty factors affecting specific achievements of project 
3. Monitoring and evaluation of project 
Performance indicators 
* output indicators (measurement of activity deployed) 
* impact indicators (by aim pursued) 
Details and frequency of evaluation planned 
Assessment of results obtained. 
s 
ISSN 0254-1475 
COM(96) 397 final 
DOCUMENTS 
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Catalogue number : CB-CO-96-391-EN-C 
ISBN 92-78-07468-3 
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