COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT - BIANNUAL UPDATE OF THE SCOREBOARD TO REVIEW PROGRESS ON THE CREATION OF AN AREA OF "FREEDOM, SECURITY AND JUSTICE" IN THE EUROPEAN UNION (SECOND HALF OF 2002)

FOREWORD

The Scoreboard to review progress on the creation of the area of freedom, security and justice is established by the Commission at regular intervals to monitor progress in the adoption and implementation of the set of measures needed to attain the objectives set by the Amsterdam Treaty and the Tampere European Council of 15 and 16 October 1999.

This issue of the Scoreboard, like its predecessors, sets out the objectives and deadlines set at Tampere and the responsibilities assigned in each case to launch, advance and complete the process. To make the progress accomplished easier to follow, the tables distinguish proposals and initiatives presented, progress in Council and, in appropriate cases, European Parliament proceedings and work planned for the future. A section on the transposal of instruments that have been adopted outlines the position regarding the adoption and implementation of decisions and measures taken.

An introductory summary recapitulates the main achievements since Tampere and the Commission proposals and work planned in relation to them so as to help the reader interpret the tabular presentation that follows.

TABLE OF CONTENTS

1. Summary

2. A common EU asylum and migration policy

2.1. Partnership with countries of origin

2.2. A common European asylum system

2.3. Fair treatment of third country nationals

2.4. Management of migration flows

3. A Genuine European Area of Justice

3.1 Better access to justice in Europe

3.2. Mutual recognition of judicial decisions

3.3. Greater convergence in civil law

4. Union-wide Fight against Crime

4.1. Preventing crime at the level of the Union

4.2. Stepping up cooperation in the fight against crime

4.3. Fight against certain forms of crime

4.4. Special action against money laundering

5. Issues related to internal and external borders and visa policy, Implementation of Art. 62 EC and converting the Schengen

6. Citizenship of the Union

7. Cooperation Against Drugs

8. Stronger External Action

9. Other current initiatives

1. SUMMARY

This Part sets out the main progress made in implementing the conclusions of the Tampere European Council since the last version of the Scoreboard was presented by the Commission on 30 May 2002 and work planned by the Commission for 2003 in its work programme. Progress is detailed in the tables below.

The progress made in the last six months confirms that the impetus given at the Laeken European Council is continuing to bear fruit. Major decisions on which the principle had been agreed have now been formally confirmed. An example is the adoption of the European arrest warrant and the framework decision on terrorism. Important progress was also made with judicial cooperation in civil matters in the application of the mutual recognition principle.

But this progress must be seen in the light of what remains to be done to complete the Tampere programme on schedule.

The backlog referred to by the Laeken European Council has not been cleared in some areas, notably as regards the common policies on asylum and immigration, though the necessary proposals are all before the Council. The Seville European Council nevertheless felt the need to give a fresh impetus by declaring its determination to speed up every aspect of the implementation of the programme adopted at Tampere for the creation of an area of freedom, security and justice in the European Union. New priority has accordingly been given to measures to combat illegal immigration and to progress in establishing common management of external borders.

But the fact remains that, despite the efforts made and the undeniable progress achieved, the difficulties raised by the Commission in the 30 October 2001 Scoreboard for the Laeken European Council's mid-term review of the implementation of the Tampere programme have not gone away. They lie in particular in the problems of adjusting national approaches to these admittedly tricky matters, which the Union's current institutional set-up and decision-making mechanisms provide no means of obviating. The Union is faced with imminent enlargement on an unprecedented scale. And 2003 will be the last year of the run-up to the deadlines set by the Amsterdam Treaty and the Tampere programme. At a time when the Convention of the future of Europe is coming up to a crucial stage in its proceedings, thought must be given to ways of avoiding all dispersal of initiatives if the measures that have been given priority are to be taken on time.

The tables below provide a more detailed snapshot of the work that has been done and of the Commission' s priorities for the next year in such key areas for the attainment of an area of freedom, security and justice as asylum, immigration, justice, the fight against crime, external borders, citizenship and the enhancement of external action.

A common EU asylum and migration policy

Eighteen months ahead of the deadline set by the Amsterdam Treaty, only a few of the objectives defined for the establishment of a common asylum and immigration policy have been met. The Seville European Council did endeavour to accentuate the dynamism flowing from the Laeken European Council.

Significant progress should be made on the asylum front with the expected adoption in December of the Dublin II Regulation laying down criteria and mechanisms for determining the Member State responsible for examining an asylum application presented in another Member State, as requested by the Seville European Council.

In June the Commission, in accordance with the conclusions of the Laeken European Council, presented an amended proposal for common minimum standards concerning the procedure for granting or withdrawing refugee status. In July, following the decision by the Permanent Representatives Committee to close the CIREA (Centre of Information, Reflection and Exchange on Asylum), the Commission set up a European Union network for asylum practitioners (EURASIL).

Early in 2003 the Commission is planning a progress report on work on the common asylum procedure and the uniform status, and on the implementation of the first-stage instruments. Late in 2003 it will follow this with two communications concerning the examination of asylum applications outside the EU and the establishment of a single procedure for examining applications for protection in the Member States.

On the immigration front, the proposal for a directive on family reunification, amended by the Commission in May at the Laeken European Council's request, is still under examination. The rules on admission of third-country nationals, laid down in particular in the proposal for a directive on admission for the purposes of employment of July 2001, were supplemented by a new proposal for a directive presented by the Commission in October on the conditions for entry and residence for the purposes of studies, vocational training and voluntary service.

In the first half of 2003 the Commission is planning a communication on the integration of third-country nationals, a matter regarded as important by the Seville European Council.

Regarding the evaluation of migratory flows, following its communication of July 2001 on the implementation of an open coordination method, the Commission presented a communication in December on the implementation of the Council Action Plan of April 1998 on the exchange and analysis of statistics to help set up an information exchange system on asylum, migration and countries of origin. The Council, acting on a Commission proposal, adopted a Decision establishing an action programme for administrative cooperation in the fields of external borders, visas, asylum and immigration (the ARGO Programme).

Turning to the fight against illegal immigration, in July the Council adopted, in accordance with the conclusions of the Seville European Council, a framework decision on the fight against trafficking in human beings and in November, a framework decision on the liability of people smugglers and a directive defining assistance for illegal entry, transit and residence. In 2003 the Commission will present a White Paper on Reinforcement of the provisions governing the liability of carriers.

Concerning aid for countries of origin and transit, the Seville European Council confirmed that the Union was ready to provide the necessary technical and financial assistance, so the Commission intends to present a proposal in 2003 with the aim of establishing a multi-annual programme of cooperation with third countries in the field of migration. The intention is to respond in a specific and complimentary way to the needs of third countries in their efforts to ensure better management of all aspects of migratory flows and, in particular, to stimulate third countries in their preparation to implement the readmission agreements or to assist them with the implementation itself. This programme will be implemented in conformity with the global coherence of the Community's external action plan and in complement to the other community cooperation and development instruments.

The conclusion of readmission agreements with third countries is an aspect of the management of migratory flows to which great importance was attached at Seville, where the European Council asked for the conclusion of agreements currently being negotiated to be accelerated and for the new mandates for the Commission to negotiate with other countries to be approved.

An agreement was signed by the Commission with Hong Kong on 27 November. This will be the first Community readmission agreement to enter into force. It should be followed by agreements with Sri Lanka, initialled on 30 May, and Macao, initialled on 18 October 2002, which are in the process of being ratified. Negotiations began in November with Ukraine, and informal negotiations are continuing with Morocco.

The Seville European Council called for a clause on the joint management of migratory flows and compulsory readmission in the event of illegal immigration to be inserted in all future cooperation, association and equivalent agreements concluded by the European Union or the European Community (see conclusions of the General Affairs Council of 18.11.2002). The Council gave the Commission new mandates to open negotiations with Albania, Algeria, China and Turkey and adopted conclusions on closer cooperation with third countries in the management of migratory flows.

The policy on the return of illegal residents in Union territory is another facet of the policy on management of migratory flows in the Union. Following its April Green Paper and the conclusions of the Seville European Council calling for the basics of a repatriation policy to be put into place by the end of the year, the Commission presented a communication in October outlining its first thoughts on a programme of action on returns. On this basis, the Council adopted Action plan on returns in November and also indicated its agreement on the plan for returns to Afghanistan. Moreover, and at the European Council's request, the Commission transmitted a report in December to the Council on the financial resources available at community level for the repatriation of refugees and asylum-seekers whose applications are rejected, on the management of external borders and on asylum and migration projects in third countries. The Commission adopted this report jointly with a Communication on migration and development.

European Law-enforcement Area

As regards civil matters

Useful progress was made in the last six months. The Member States and the Commission completed the preparatory work for the Network, which has been operational since 1 December.

The Council should be able to adopt the directive on judicial aid in December. Following its proposal of payment of uncontested claims presented in April, the Commission intends to present a Green Paper in December 2002 on closer approximation of the rules of procedure for uncontested claims and small claims, and in 2003 it is planning a proposal for a European injunctions-to-pay procedure.

To improve the protection of victims' rights and assistance to victims, the Commission presented a proposal for a directive on victim compensation in October to follow up the Green Paper presented in September 2001, which has been widely debated since then.

Numerous initiatives were taken to inform the public about judicial cooperation in civil matters in the Union: a joint conference with the Council of Europe on access to justice in October; a campaign to be launched in 2003; and initiatives to improve familiarity with the European Judicial Network in civil and commercial law among the judiciary and the general public.

In October the Council adopted negotiating directives for an agreement between the Community and the Lugano Convention States to facilitate the mutual recognition of judgments in civil and commercial matters.

As for the law applicable to non-contractual obligations (Rome II Convention), the Commission launched a public consultation on a preliminary draft Regulation and is expecting to present its definitive proposal in the first half of 2003.

The Commission intends to adopt a Green Paper in December 2002 on the question of revision of the Rome Convention with a view to modernising it and possibly converting it into a Community instrument.

Both the Council and the Commission launched studies on the law applicable to divorce. The results of the Commission study were made available in the third quarter, and the Commission is planning to present a White Paper on that basis in 2003.

Finally, in November the Council reached agreement in principle on an essential aspect of the draft Council regulation on the competence, recognition and execution of decisions in the areas of marital and parental responsibility, namely the settlement of questions of jurisdiction in cases where children are removed. An agreement could also be reached on the Council Decision authorizing Member States to sign, in the interest of the European Community, the 1996 Hague Convention.

As regards criminal matters

The adoption by the Council of the Framework Decision on the European arrest warrant and surrender procedures in June (based on a Commission proposal) constitutes the first, and without doubt one of the most important achievements in the implementation of the programme of mutual recognition in criminal matters. It replaces a complex system, which required a combined reading of several conventions on extradition, with a single system of surrender based upon the European arrest warrant and in particular removing the need for intervention at governmental level from the procedures. Moreover, it constitutes a significant advance in removing the dual criminality requirement in cooperation between Member States in respect of 32 categories of serious offences. It also constitutes progress on other aspects (e.g. surrender of own nationals). The deadline for implementing the framework decision is 31.12.2003, although five Member States have already agreed to apply it from 1 January 2003.

In addition, by way of complement to the mutual recognition programme, the Commission is planning to present, in the first half of 2003, a Green Paper on the procedural guarantees enjoyed by suspects and a communication on criteria for determining jurisdiction in criminal matters.

Regarding the mutual recognition of decisions at the pre-trial stage, the Council must still formally adopt the framework decision on the freezing of assets and evidence, following the Opinion of the European Parliament. The Commission intends to present, in 2003, a proposal for a framework decision on the mutual recognition of measures relating to evidence.

In November the Council made progress on a framework decision on the application of mutual recognition to financial penalties. In June, Denmark presented a draft framework decision on the enforcement of confiscation orders in the Union. In 2003 the Commission is planning to present a communication on the approximation of criminal penalties.

On the exchange of information on criminal records, the Commission is planning to present a proposal for a decision establishing a standard-form request for details of criminal records in the first half of 2003.

Union-wide Fight against Crime

The fight against the most serious forms of crime, including terrorism, is more than ever a high Union priority.

Regarding Europol, the Council adopted an Act of Council on the 28 and 29 November carrying a protocol which amends the 'Europol' Convention in order to clarify the role and degree of participation of those responsible at Europol with Joint Investigation Teams as well as the requests of Europol to initiate criminal investigations.

In addition, a series of negotiations about the exchange of information are underway between Europol and third countries including in particular candidate countries but also countries like the United States, Canada, Norway and Iceland.

The purpose of the AGIS programme for police and judicial cooperation in criminal matters, adopted by the Council in July for the period 2003-2007, is to reinforce cooperation between the police and judicial authorities of the Member States. AGIS takes over the activities of the former Title VI cooperation programmes OISIN, FALCONE, GROTIUS, STOP and HIPPOKRATES and the budget heading to implement the Union action plan against drugs.

The first annual report of the European crime-prevention network on crime prevention in the Union will be out shortly. The Forum for the prevention of organised crime pursued its activities with workshops on money-laundering, studies on the impact of crime, counterfeiting and piracy, and trafficking in cultural goods. In 2003 the Commission is planning a communication on crime prevention to follow up its initial communication of December 2000.

To combat organised crime, the Council adopted a framework decision on joint inspection teams in June, approved the Rules of Procedure and appointed the president of Eurojust to help combat organised crime. In December, the Eurojust unit moved to the Hague (the provisional seat decided by the Laeken European Council).

Progress was made on the harmonisation of definitions, offences and penalties for certain serious forms of crime. In June the Council adopted the framework decision on terrorism, followed in July by a framework decision on the fight against trafficking in human beings. In October the Council agreed to the principle of a framework decision on the fight against sexual exploitation of children and child pornography.

Now that the first framework decisions have been adopted, the question of proper transposal is of great importance for their effectiveness. In February 2002, the Council adopted its first report on the framework decision strengthening the protection of the Euro through criminal penalties. In January 2003 the Commission will present its second report on the implementation of this framework decision and at the end of 2003 it will present a report on the transposal of the framework decision of June 2002 on the fight against terrorism.

Regarding the reinforcement of the protection of the Community's financial interests, the Commission presented an amended proposal in October, following the opinion of the European Parliament. In January 2003 the Commission will submit an evaluation report on the activities of OLAF, who will tackle in particular the questions relating to the legal follow up of the investigations of OLAF. In March 2003, the Commission will present a Communication on the follow-up of the Green Paper relating to the European Prosecutor.

Regarding money-laundering, which finances both organised crime and terrorism, the Presidency presented draft framework decisions on confiscation orders and their enforcement in the European Union. In 2003 the Commission is planning a proposal for a framework decision to combat money laundering through payments in cash. It will also present a communication evaluating the action undertaken to combat financial crime under the third pillar.

Policy on internal and external borders and visas, and Schengen

The Seville European Council stressed the priority to be given to establishing common management of the Union's external borders. In June, following the Commission communication of 7 May, as well as the feasibility study commissioned by Italy on the development of joint actions and a study on police and security at borders, the Council adopted a plan for the management of the Union Member States' external borders.

Following the Seville European Council, work continued on improving coordination between immigration liaison officers in the Member States. Joint operations at external borders are in preparation, and several pilot projects have been launched. These include a working party to devise a common model for risk analysis, which the European Council highlighted as a priority. Work will continue in 2003 on the various aspects of common management of borders, including the possible establishment of a European corps of border police.

The European Council also asked the Commission to consolidate the Community rules on external border controls and surveillance, and in the first half of 2003 the Commission is planning to present a proposal for restructuring the Common Manual for external borders.

In the framework of developing a common policy on visas, the Commission presented a proposal in October amending the common consular instructions. In September it launched a feasibility study on the introduction of a common visa identification system, the results of which will be available at the end of the first quarter of 2003 and will lay the basis for a proposal for a Regulation that the Commission is planning to present to develop such a system.

The European Council asked the Council and the Commission to give top priority to reviewing the list of third countries whose nationals must be in possession of a visa and those that are exempt from that requirement, under the Union's plan of action against illegal immigration, in November the Commission adopted a proposal to modify regulation No 539/01, based on the responses to a questionnaire addressed to Member States.

In June, among the measures to combat false documents, the Council adopted a Regulation to communitise the uniform format for residence permits for third-country nationals, the necessary technical specifications having been adopted in August.

Finally, work continued on developing the second-generation Schengen Information System, the Commission having launched a feasibility study in July 2002.

Citizenship of the Union

The Council discussed the proposal for a directive on the right of Union citizens and members of their families to move and reside freely in the territory of the Member States, thus completing the rules on Union citizens' rights of entry, movement and residence.

In addition, the Commission intends to present a proposal in 2003 for a Regulation on a uniform format for residence cards for Union citizens and members of their families.

Cooperation Against Drugs

The Commission made its mid-term review of the implementation of the European Union Plan of Action against drugs (2000-2004) adopted at the Feira European Council in June 2000, presenting a communication in November. The guidelines set out in the communication were approved at the Copenhagen European Council.

The Laeken European Council had requested that the Council adopt the framework decision establishing minimum provisions on the constituent elements of criminal acts and penalties in the field of drug trafficking before the end of May 2002. The Counsel is still discussing this instrument which is on the agenda for the JHA Council in December.

Stronger External Action

The negotiations with the applicant countries of Chapter 24 on justice and home affairs are provisionally closed as regards ten of these countries. They are continuing with Bulgaria and Romania. In October the Council had a discussion with the Ministers of Justice and Home Affairs of the applicant countries on questions relating to the Schengen evaluation process and mutual recognition.

Given the importance of pursuing cooperation with the applicant countries, it must be stressed that the Community still provides support even though the negotiations are completed. The October European Council supported the insertion of safeguard clauses in future accession treaties.

Regarding the non-applicant countries in the Balkans, association and stabilisation agreements containing a major Justice and Home Affairs chapter were signed with Croatia and FYROM. The Council gave a mandate for negotiations with Albania and exploratory discussions are going on with the Federal Republic of Yugoslavia.

Cooperation with the United States also features as a priority the Union's agenda. On the basis of the mandate given by the Council in April, an agreement on judicial cooperation in criminal matters is being negotiated under Articles 24 and 38 of the Union Treaty.

With regard to non-candidate countries, the Commission has tried to integrate in a specific manner the themes related to justice and home affairs in their cooperation programmes with third countries. A significant amount of aid has been programmed, mainly for the period 2002-2004, in order to support third countries directly in their efforts- initially those in the areas of the Mediterranean (e.g. MEDA), the Balkans, Eastern Europe and Central Asia- directly in their efforts.

2. A common EU asylum and migration policy

The Tampere priorities:

The separate but closely related issues of asylum and migration call for the development of a common EU policy. The Seville European Council formally restated the need for this and set precise deadlines for the adoption of legislative instruments [1].

[1] Council Decision 2002/463/EC of 13 June 2002 adopting an action programme for administrative cooperation in the fields of external borders, visas, asylum and immigration (ARGO) (OJ L 161, 19.6.2002, p. 11).

2.1. Partnership with countries of origin

The European Union needs a comprehensive approach to migration, addressing political, human rights and development issues in countries and regions of origin and transit. A partnership with the relevant countries will also be a decisive factor for the success of this policy with a view to promoting co-development.

After the Tampere European Council, the themes related to justice and home affairs were integrated in a specific manner in the cooperation programmes with third countries (e.g. the national and regional strategy documents adopted by the Commission).

Objective: Assessment of countries and regions of origin and transit in order to formulate specific integrated approaches

>TABLE POSITION>

2.2. A common European asylum system

The aim is to ensure full and inclusive application of the Geneva Convention, ensuring that nobody is sent back to persecution, i.e. maintaining the principle of non-refoulement.

In the long term, a common asylum procedure and a uniform status for refugees must be established, to be valid throughout the Union.

Secondary movements by asylum seekers between Member States should be limited.

Agreement will be actively sought on a temporary protection regime for displaced persons, on the basis of solidarity among Member States.

Objective: To determine the State responsible for examining an asylum application

>TABLE POSITION>

>TABLE POSITION>

2.3. Fair treatment of third country nationals

The conditions for admission and residence of third-country nationals will be approximated, on the basis of a shared assessment of economic and demographic developments within the Union, as well as of the situation in the countries of origin.

An integration policy should aim at granting third-country nationals who reside legally on the territory of Member States (and in particular long-term residents), rights and obligations comparable to those of European Union citizens, as well as enhancing non-discrimination and the fight against racism and xenophobia.

>TABLE POSITION>

>TABLE POSITION>

2.4. Management of migration flows

Management of migration flows should be improved at every stage through close cooperation with countries of origin and transit. The Laeken European Council recalled the importance of incorporating policy on migratory flows in the Union's external relations policy, of stepping up the fight against illegal immigration by combating the criminal organisations involved while guaranteeing victims' rights, and asked for a plan of action to developed on the basis of the Commission's communication on illegal immigration and trafficking in human beings. The Seville European Council confirmed this and asked for measures to respect a fair balance between (a) a policy of integration of legal immigrants and an asylum policy complying with international conventions and chiefly the Geneva Convention of 1951 and (b) a resolute fight against illegal immigration and trafficking in human beings. The council has also requested that the Commission present a report on the effectiveness of the financial resources available at community level as regards repatriation of immigrants and those with rejected asylum claims, of management of external borders and asylum and migration projects in third countries.

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

3. A Genuine European Area of Justice

The Tampere priorities:

The aim is to give the general public a shared sense of justice throughout the European Union, seen as a means of facilitating the daily life of persons and the possibility of calling to account those who threaten the freedom and security of individuals and society. This includes both better access to justice and full judicial cooperation among Member States.

The Tampere Summit called for practical steps to be taken to improve access to justice in Europe and for mechanisms to be put in place to protect victims' rights. It also advocated developing machinery for the mutual recognition of judicial decisions.

3.1 Better access to justice in Europe

A genuine area of justice must ensure that individuals and businesses can approach courts and authorities in any Member State as easily as in their own and not be prevented or discouraged from exercising their rights by the complexity of the legal and administrative systems in the Member States.

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

3.2. Mutual recognition of judicial decisions

A genuine area of justice must provide legal certainty to individuals and to economic operators. To that end, judgments and decisions should be respected and enforced throughout the Union.

Enhanced mutual recognition of judicial decisions and judgments and the necessary approximation of legislation would facilitate cooperation between authorities and the judicial protection of individual rights and will make it possible to respond to the call made at the Laeken European Council for "efforts to surmount the problems arising from differences between legal systems". The principle of mutual recognition should become the cornerstone of judicial cooperation in both civil and criminal matters within the European Union.

As regards civil matters:

>TABLE POSITION>

3.3. Greater convergence in civil law

In order to smooth judicial cooperation and enhance access to law, better compatibility and more convergence between the legal systems must be achieved.

>TABLE POSITION>

4. Union-wide Fight against Crime

Tampere priorities and EU strategy against organised crime at the beginning of the new millennium

The Tampere European Council called for a balanced development of Union-wide measures against all forms of crime, including serious organised and transnational crime, should be achieved while protecting the freedom and legal rights of individuals and economic operators. In this context, particular attention is drawn to the "European Union Strategy for the beginning of the new Millennium" on prevention and control of organised crime. Some complementary actions, going beyond the Tampere conclusions and called for by the recommendations in this strategy, have been included in this chapter.

4.1. Preventing crime at the level of the Union

Any efficient policy in the fight against all types of crime, organised or otherwise, must include also preventive measures of a multidisciplinary nature.

Crime prevention aspects must be incorporated into actions and programmes against crime at Union and Member State level.

Cooperation between national prevention organisations should be encouraged and certain priority areas should be identified.

>TABLE POSITION>

4.2. Stepping up cooperation in the fight against crime

In a genuine area of justice, criminals must not find ways of exploiting differences in the judicial systems of Members States. In its work on the protection of the Community's financial interests, the Laeken European Council took note of the Green Paper adopted by the Commission on a European Public Prosecutor and asked the Council to examine it quickly.

Giving citizens a high level of protection implies greater cooperation between the authorities responsible for applying the law. To this end, maximum benefit should be derived from cooperation between authorities in the Member States when investigating cross-border cases.

The Treaty of Amsterdam, by conferring additional powers on Europol, recognised the latter's essential and central role in facilitating European cooperation in preventing and combating organised crime.

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

4.3. Fight against certain forms of crime

With regard to national criminal law, efforts to agree on common definitions, changes and penalties should be focused in the first instance on a limited number of sectors of particular relevance. Agreements on common definitions, charges and penalties regarding serious organised and transnational crime need to be established in order to protect the freedom and legal rights of individual and economic operators. At its meeting of 27-28/9/01, the Council stated that it would make progress without delay on the general methodology to be followed in the harmonisation of penalties, and on 25-26 April 2002 it adopted conclusions on the approach to be followed for harmonisation of penalties. The Commission is planning a communication on the harmonisation of penalties.

>TABLE POSITION>

4.4. Special action against money laundering

Money laundering is at the very heart of organised crime. For that reason measures must be taken to root it out wherever it occurs and to ensure that concrete steps are taken to trace, freeze, seize and confiscate the proceeds of crime. The special European Council held on 21 September 2001 also stressed the importance of the fight against the financing of terrorism and asked that a report be prepared on it by June 2002.

>TABLE POSITION>

5. Issues related to internal and external borders and visa policy, Implementation of Art. 62 EC and converting the Schengen

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

>TABLE POSITION>

6. Citizenship of the Union

>TABLE POSITION>

>TABLE POSITION>

7. Cooperation Against Drugs

Priorities of the EU drugs strategy

As a collective and individual threat, the drugs problem needs to be addressed in a global, multidisciplinary and integrated manner. A mid-term evaluation of the EU Plan of Action against Drugs (2000-2004) was adopted by the Council in November 2002. The final evaluation will be undertaken with the help of the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) and Europol.

>TABLE POSITION>

8. Stronger External Action

Priorities of the European Council meetings in Tampere and Feira

The European Union underlines that all powers and instruments at the disposal of the Union, in particular in external relations, must be used in an integrated and consistent way to build the area of freedom, security and justice. Justice and Home Affairs concerns must be integrated into the definition and implementation of other Union policies and activities.

With respect to non-candidate countries, the Commission has made an effort to integrate in a specific manner (and in accordance with a multi-annual programme), those aspects relating justice and home affairs in its cooperation programmes with third countries.

>TABLE POSITION>

9. Other current initiatives

>TABLE POSITION>