PROPOSAL FOR A EUROPEAN PARLIAMENT AND COUNCIL DECISION adopting the "Youth for Europe III" programme designed to promote the development of exchanges among young people and of youth activities in the Community "Youth for Europe" programme
Date: 1993-11-04
Institutions: European Commission
Subjects: European Movement, action programme, cultural cooperation, education policy, young person, youth exchange scheme

COMMISSION OF THE EUROPEAN  COMMUNITIES 

COM(93) 523 final - COD 474 
Brussels, 4 November  1993 

PROPOSAL FOR A 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 

adopting the "Youth for  Europe HI" programme designed to promote 
the development of exchanges among young people and of 
youth  activities in the Community 

"Youth for  Europe" programme 

(presented by the Commission) 

SÏ:IMH 

PROPOSAL FOR A 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 

on the "Youth for  Europe" programme 

List of contents 

Introduction 

I.  Context and challenges 

II.  Cooperation  and subsidiarity 

III.  Proposed guidelines for Community  action 

IV.  The proposal  for  a Decision  and its Annexes 

Proposal  for  a Decision 

Annex 

Introduction 

1.  Article  126 of  the EC Treaty, as modified  by the Treaty  on European  Union  is designed 
to encourage the development  of youth  exchanges and of  exchanges of socio-educational 
youth  workers  in  order  to  contribute  to  the  development  of  quality  education.  In  this 
document the Commission  accordingly  puts forward  a programme of Community  actions 
in  the  context  of  youth.  These  actions,  intended  as  informal  education,  are  designed  to 
secure  in  an  appropriate  teaching  context  the  involvement  of  young  people  in  the 
construction  of  Europe,  to  encourage  their  active  participation  in  the  extra-curricular 
field  and  to  encourage  the  cooperation  of  Member  States,  and  thus  contribute  to  the 
education  of  the young  citizen.  They  cannot be  set  within  the  same  framework  as those 
based  on  teaching  and  training  structures  because  of  the  differences  in  terms  of  target 
public,  objectives  and  national  authorities  responsible,  and  thus  need  a  specific 
programme. 

2.  The  Commission's  proposal  is  based  on  a  series  of  very  tangible  factors  emerging  from 
the  bilateral  discussions  organized  by  the  Commission  with  each  of  the  Member  States 
and  the  Youth  Forum,  around  the  experience  and  evaluation  of  the  first  two  phases  of 
the  "Youth  for  Europe"  programme,  around  the  experience  gained  through  Priority 
Actions  in  the  youth  field  and  around  the  stances  of  the  European  Parliament  on  this 
subject.  The  Commission  would  thus like  to  acknowledge  and give  fresh  impetus to the 
efforts  of  Member  States  to  prepare  young  people  for  their  future  as  citizens  of  the 
Community. 

3.  The  proposal  on  the  third  phase  of  the  programme  is  designed  to  guarantee  a  better 
rationalization  and  thus  a  better  cohesion  between  the  different  actions  in  the  field  of 
youth,  until  now  scattered  under  different  Community  programmes  or  budgetary  lines. 
The  proposed  approach  is  not  just  a  pure  and  simple  addition  of  these  actions  but 
represents  a new logic of the programme. 

I.  Context and challenges 

4.  The  adoption  in  1988  by  the  EC  Council  of  Ministers  of  the  "Youth  for  Europe" 
programme  to  support  the  mobility  of  young  people  was  the  result  of  a  series  of 
initiatives  in  the  youth  field  taken  by  the  European  Parliament  and  the  Commission 
since  1972, and represented  a first step in this context. 

5.  A  fresh  step  was  taken  in  1990  when  the  Commission  submitted  its  memorandum 
entitled  "Young  people  in  the  European  Community"  and  established  that  "Community 
activity  in  the  field  of  youth  policy"  or  "youth  work"  would  not  only  be  useful,  but 

would  bring  added  European  value  to  what  is  or  can  be  achieved  at  Member  State 
level"(1).  In  1991,  the  European  Parliament  submitted  its  report  entitled  "Community 
policies  and  their  impact  on  young  people"(2)  and  a  first  formal  meeting  of  Ministers 
responsible  for youth  matters was held under the Luxembourg  presidency. 

6.  The  Member  States  themselves  clearly  confirmed 

in  establishing 
Community  level  cooperation  on  experimental  work  in  the  field  of  youth  and  in  setting 
up measures to  favour  new  actions  with  and by young  people,  by  adopting  in June  1991 
a Council  Resolution  on priority  actions in the youth field. 

interest 

their 

Lastly,  at the  end  of  that  same  year,  the  European  Parliament  introduced  a budget  line 
for implementing  these Priority  Actions  while providing  for  activities of  cooperation  and 
mobility  with young  people  from non-member  countries.  This budget item  was  renewed 
in  1993  and the European Parliament  at the  same time introduced  a fresh  budget heading 
entitled  "Youth  policy"  (B3-101)  for  the  Youth  for  Europe  Programme  and  die  Priority 
Actions in the youth field. 

7.  Member  States'  approaches to  youth  matters differ  considerably  and have  been  followed 
up  to  varying  extents,  which  is  also  true  of  the  youth  associations  and  organizations, 
which  play  an  essential  role  in  this  sector.  In  order  to  understand  this  proposal  for  a 
Decision,  it  is  thus  important  to  appreciate  the  importance  and  the  reason  d'être  of  a 
consistent policy  and initiative  on youth  at Community  level. 

8.  As  a  specific  social  group  made  up  of  individuals  in  a  situation  of  expectancy  and 
search  and having  to  assert  themselves  in  order  to  assume  their  rightful  role  in  society, 
young  people  must  accomplish  certain  tasks  generally  allocated  to  them  in  our societies: 
being  trained,  being  educated,  integrating  into  society  and  into  what  is  known  as  the 
labour  market,  and  becoming  active  citizens,  all  of  which  implies  some  extent  of 
autonomy. 

9.  A  range  of  actions  which  fall  into  the  category  of  what  could  be  termed  "youth  policy" 
exists  in  all  Member  States.  They  are  designed  primarily  to  promote  active  citizenship, 
by  which  is  meant  the  state  of  mind  and  the  attitude  which  prompts  young  people  to 
take  responsibility  for  their  own  lives  and  make  an  active  contribution  to  the  creation 
and  development  of  the  fundamental  principles  of  democracy,  freedom  and solidarity  in 
the world in which  they  live  and act. 

10.  Actions  targeted  specifically  at  young  people  in  the  context  of  youth  policy  are  set 
within  the  broader  framework  of  education  as  such.  Education,  in  this  context,  relates 
to all  the types of  learning  and all the intellectual,  moral  and civic  values  which  a young 
person  must  acquire  to  become  an  active  responsible  citizen  in  society  today  and in  the 
future. 

(i) 

(2) 

COM(90)  469 final. 
Rapporteur: Mr L. Vecchi, May  1991  (A3-0142/91). 

11.  These  actions  complement  the  more  formal  action  framework  of  the  education  and 
raining  structures,  and  are  an  excellent  means of  action  in  a  society  where  increasingly 
precarious  conditions  of  access  to  employment  and  the  labour  market,  particularly  for 
the young,  generate  two  major  dangers,  viz.  personal  demotivation  and  socio-economic 
exclusion,  and  all  the  consequences  of  marginalization.  This field of  action  should  gain 
even  more  ground  in  the  years  ahead  and  contribute  to  the  development  of  quality 
education,  for  not  only  does  it  make  it  possible  to  reach  the  young  people  who  are 
finding  it  difficult  to  enter  the more  formal  systems of  education  and training, but  also 
because  it  gives  all  young  people  a  chance  to  experiment  with  new  forms  of 
participation  and  particularly  to  obtain  recognition  for  this  activity.  Action  of  this kind 
will have  an  impact  on the  measures  adopted  by  the  sectoral  policies, particularly  those 
taken  in  the  field  of  education  and  linked  to  teaching,  in  that  it  favours  and  intensifies 
the  development  and  fulfilment  of  personalities  in  the  making  and in  that  it helps them 
to better find their way in society. 

12.  Moreover, against a background  of constantly increasing pressure from  migration, young 
people  are  the  players  and  victims  of  racism  and  are  vital  components  in  avoiding  a 
fresh  upsurge  in  racist  and  xenophobic  behaviour.  The  fight  against  racism  and 
xenophobia thus constitutes substantial  added value for  EC action. 

13.  Public  and private  action,  both  at  the  Community  and  at the  national  levels, centres on 
the  efforts  of  associations  in  the  broad  sense,  extra-curricular  activities  and  initiatives 
by  the  young  themselves  outside  the  world  of  work,  school,  military  service,  etc., and 
the  youth  movements,  are  active  examples  of  the  democratic  commitment  of  and  with 
young people. 

14.  As  regards  Community  action  in  this field, these  young  people  thus  represent  now and 

in the long term the new generation on which the future  of Europe hinges. 

II.  Cooperation and subsidiarity 

15.  The new Maastricht Treaty  clearly  defines  the responsibilities of the Member  States. The 
role  of  the  Community  complements  that  of  the  Member  States.  This  complementarity 
will  mean  greater  cooperation  with  relevant  national  authorities  and  the  youth 
organizations, the real  "social partners" in this field. 

16.  Increasing the participation  of young people and creating points of integration, creativity 
and  participation  are  first  and  foremost  the  responsibility  of  the  Member  States.  The 
Community's  role in the field of  youth  - a field characterized  by  comparative  dispersion 
and  weakness  as  regards  structures  -  can  in  some  cases  take  on  special  meaning  by 
enabling  certain  sectors  to  reach  the  minimum  development  threshold  for  national 
authorities  to  subsequently  take over.  The implementation  of  a youth  policy  as  defined 
in  this  document  therefore  implies  a  joint  endeavour  by  the  Member  States  and  the 
Community  institutions together. 

17.  Moreover,  die  Community  has  an  essential  role to  play  when  it  comes to  developing  a 
sense  of  belonging  to  a  community,  to  encouraging  the  participation  of  young  people 
in  Europe  and  transnationally,  but  also  in  making  Community  action  more  tangible  in 
the immediate  environment  of  young  people.  It  should  also  be noted  that  the  activities 
of  young  people  generally  tend  to  start  off  at  the  local  level.  For  the  Community,  this 
implies an approach  which  combines the efforts  of the players concerned  at the national, 
regional  and local levels. 

IOL  Proposed guidelines for Community action 

18.  The  specific  features  of  Community  action  in  the field of youth  are firstly that  it  starts 
with  the young people themselves and not with  the  systems  within  which  they  live, and 
secondly  its  essentially  experimental  approach.  The  development  and  expansion  of  this 
type  of  action  in  the  years  ahead  must  hinge  on  die  following  fundamental  principles 
is 
which  determine 
implemented: 

the  pedagogical  framework  within  which  a  youth  policy 

strengthening  the  role  of  young  people  as  active  citizens  in  the  Community  by 
enabling  them  to  be  the  players  in  the  projects  in  which  they  are  taking  part  or 
wish  to  organize,  and  by  using  by  way  of  preference  the  modes  of  expression 
which are theirs today; 

catering  for 
is 
the  needs  of  young  people  while  ensuring 
complementarity  with  other  sectors  which  concern  them  (employment,  education 
and training, social policy, health, etc.); 

there 

that 

intercultural 

promoting 
learning  by  enabling  young  people  from  different 
backgrounds  to  meet  up  and  discuss, learn  to  become  acquainted,  to  discover  and 
accept their similarities as well as their  differences; 

promoting  preparation  and  training  of  youth  leaders  and/or  anyone  working 
directly  with young people outside the teaching  and training structures as such; 

working  in  partnership  nationally  with  the  Member  States  in  a  consistent  and 
complementary  way  in  relation  to  the  policies, structures  and  approaches  used  by 
the Member States; 

structuring  Community  action  so  as to guarantee  the biggest  impact  and  multiplier 
effect  possible as regards the structures, organizations  and people  directly  involved 
in youth work  at all levels; 

promoting  and developing youth information  and research on youth; 

encouraging  better  understanding  of  the  situation  of  young  people  outside  the 
Community through  exchanges and thus consolidating their sense of  solidarity; 

integrating  existing  experimental  actions  (priority  actions,  youth  activities  under 
the  Tempus  programme,  youth  initiative  projects  under  PETRA)  while  ensuring 
consistency  and complementarity  with other Community  programmes or measures. 

IV.  The proposal for a Decision and its Annexes 

A.  The Decision 

19.  As  indicated  in  the  guidelines  of  5  May  1993,  the  Commission  will  present  three 
proposals: one concerning  education  (universities, higher  education  institutions, schools), 
on  other  concerning  vocational  training  (initial  and  continuing)  and  finally  the  third 
concerning youth. 

As shown in the annexed table, Youth  for  Europe III integrates Youth  for  Europe II, the 
Priority  Actions, and certain  actions of the Petra and Tempus programmes  as well  as the 
appropriate  information. 

20.  Articles  1 and  2  of  the  proposal  for  a  decision  set  out  the  basis  and  objectives  of  the 
proposal  for  a  Decision  and  the  integrated  approach  it  implies.  In  keeping  with  its 
approach  to  education  and  training,  the  Commission  feels  that  the  time  has  come  to 
progress towards  an integrated  approach  which  should permit not only  the  consolidation 
and  enhancement  of  what  has  been  achieved  to  date, the  pursuance  and  development  of 
innovatory  actions  at the  Community  level, but  also  the  strengthening  of  the  quality  of 
the  educational  work  undertaken  under  the  different  actions  proposed.  The  point  is  to 
expand,  at  European  level,  the  field  of  learning,  experimentation  and  innovation  for 
young  people,  their  youth  workers  and  those  responsible  in  this  area.  An  integrated 
approach  will  make an  albeit small  contribution, through  the players  involved,  the scope 
and  the  methods  used,  to  a  more  egalitarian  Europe  closer  to  the  citizen  and  having 
greater  regard  for  differences.  It  will  also  constitute,  for  most  Member  States,  a  new 
phase  and  could  have  an  impact  on  the  development  of  their  action  targeted  at  young 
people, whether nationally, regionally or locally. 

21.  Article  1 also  indicates  that  'Youth  for  Europe  III'  covers  a period  of five years (1995-
1999).  This  duration  will  permit  greater  consolidation  of  action  undertaken  and  of 
structures set up at all levels to implement this action. 

22.  Article  3 proposes positive  action  for  disadvantaged  young people.  It should  be stressed 
that  'Youth  for  Europe'  is  the  only  Community  programme  which  has  set  a  minimum 
threshold  for  participation  of  disadvantaged  young  people  and  provided  for  positive 
measures  in  this  connection;  it  thus  represents  a  considerable  asset  as  regards  measures 
to  integrate  these  young  people.  The new  phase  of  development  of  Community  action 
will pursue and expand the specific  consideration  given to this group. 

23.  Article  4  concerns  cooperation  with  Member  States  regarding  the  implementation, 
assessment  and  monitoring  of  the  programme.  Under  the  terms  of  the  Treaty  on 
European  Union,  the  Commission  must  ensure  that  the  acquis  communautaire be 
maintained  in  full  and  built  on.  The  Commission  thus  feels  there  is  a  case  for 

maintaining  the  decentralized  nature  of  the  programme  for  exchanges  and  mobility  as 
well  as actions targeted  at youth  workers, which  constitute  indirect  support  measures  for 
the  activities  directly  involving  young  people,  and  periods  of  voluntary  service  and 
exchanges with  non-member  countries  during the  consolidation  phase  (last  two years of 
the  programme).  In  addition,  the  integrated  approach  which  underpins  the  third  phase 
of  the  programme  and  particularly  the  addition  of  actions  which  did  not  feature  in  the 
first  two  phases,  will  entail  a  diversified  approach  to  cooperation  with  Member  States 
depending on the nature of the activities envisaged. 

24.  The  committee  referred  to  in  Article  5  remains  the  same  as  the  one  which  has  existed 

since the programme's first phase. 

25. 

In  the  context  of  Article  5, one need  to  stress that  the  Commission  intents to  safeguard 
the  advantage  arising  from 
the  participation  of  the  Council  of  Europe  and  the  Youth 
Forum,  as  observers,  in  this  committee.  In  this  perspective,  the  Community  wishes  to 
promote  a  flexible  system  of  cooperation  around  common  objectives  with  the 
intergovernmental  international organizations. 

B.  Annex 

26.  The  Annex  to  the  Decision  sets  out  as  five  actions  the  activities  proposed  by  the 

Commission  within this Decision: 

(1)  Action A:  Intra-Community  activities directly  involving young people 
(2)  Action B:  Youth Workers 
(3)  Action  C:  Cooperation  between Member  States' structures 
(4)  Action D:  Exchanges with non-member  countries 
(5)  Action E:  Information  for young people and  youth  research. 

Action A;  Intra-Communitv activities direcltv involving young people 

27. 

In  the  new  perspective  opened  up  for  the  third  phase  of  the  programme  exchanges 
should be incorporated  into the broader  context of youth policy  where they belong.  The 
Commission's  view  is  that  activities  of  exchanges  and  mobility  should  not  be  one-off 
events  but  rather  form  part  of  an  overall  approach  and  represent  one  of  the  major 
features  of a cycle of activities for young people and of their involvement  in society. 

28.  Community  action  at the local level  is particularly  important  in that it ought to bring an 
additional  dimension  to  the  activities  pursued  at  this  level  by  getting  across  to  young 
people  and  local  authorities that  they  are part  and  parcel  of  the Community,  as the local 
level  is  where  the  spirit  of  initiative  and  the  resolve  to  participate  in  this  Community 
come to the fore  more easily. 

29.  The  Commission  accordingly  proposes  to  support,  firstly,  projects  which  favour 
initiative,  creativity,  and  solidarity  nationally  as  well  as  regionally  or  locally,  provided 
they  include  an  explicit  Community  dimension  through  the  themes  addressed,  the 

8 

approaches  envisaged  or the  potential  for  networking  or  exchanges  with  similar  projects 
in  other  Member  States,  and,  secondly,  transnational  projects  between  similar  initiatives 
in  two  or  more  Member  States.  There  should  be  encouragement  in  this  context  for 
activities  generating  artistic  productions  for  which  the  transnational  aspect  is  a  bonus, 
as  artistic  expression  is  an  ideal  instrument  of  expression,  creativity,  solidarity  and 
mutual  comprehension  among young people. 

30.  Voluntary  work  was  supported  by  way  of  experiment  in  the  second  phase  of  the 
programme  in  order  to  ascertain  whether  this  type  of  action  was  desirable  or  whether 
additional  measures were needed nationally  or at Community level. 

31.  The discussions held with  representatives of the Member  States during this second phase 
of the programme show increased  interest in the development  of this type of  activity and 
the need  for  a  redirecting  of  voluntary  work  around  new  concepts  as  regards work  and 
solidarity  in  order  to  avoid  any  connotation  of  charity  and  social  dumping.  The 
experience  with  the  second  phase  also  confirmed  a  still  substantial  disparity  between 
Member  States  in  this  field  and  that  experience  is  still  very  limited  in  terms  of 
transnational  activities within the Community. 

32.  The  point  of  this  type  of  activity  for  the  young  people  involved  is  that  they  provide 
them  with  a channel  of  learning  in  major  sectors of  their  lives  (culture,  society, politics, 
religion),  and  at the  same time enable  them  to  take part  in  innovatory  activities  for  the 
benefit  of the community  at large. 

33.  The Commission  fully  realizes how important  it is to develop this type of activity  in the 
Community  and  how  unfamiliar  and  diversified  this  situation  is  for  many  Member 
States,  and  feels  that  initially  priority  should  go  to  building  up  a  consistent  European 
framework  while  at  the  same  time  supporting  pilot  activities  which  could  make  a 
contribution  to strengthening this framework  of action. 

Action B:  Youth workers 

34.  Article  126  of  the  EC  Treaty,  modified  by  the  Treaty  on  European  Union,  refers  not 
only  to the young people themselves but  also to the  socio-educational  workers involved. 
In  the  context  of  this proposal  for  a Decision,  these  socio-educational  workers  involved 
in youth work  as described in I  - Context  and challenges - are targeted  through  activities 
under this action. 

35.  One  of  the  challenges  of  the  third  phase  of  the  programme  is  to  broaden  the  field  of 
learning,  experimentation  and  innovation  of  young  people  at  European  level.  The  role 
of  youth  workers  in  this  context  is  essential,  for  they  are  in  the  front  line  of  regular 
contact  with  young  people  and  play  a  central  role  in  the  development  of  actions  in  the 
youth field locally, regionally,  nationally  and  in  the Community  overall.  Their training, 
their  expertise  and  their  awareness  of  die  Community  situation  are  thus  essential  to the 
success of the objectives  set for  Community  action in the youth field. 

36.  The  Commission  feels  the  activities  for  youth  workers  (study  visits,  training,  etc.) 
undertaken  under  the  first  two  phases  of  the  programme  should  be  extended  to  all 
transnational  youth  activities  provided  for  in  the  third  phase,  to  encourage  the  creation 
or consolidation  of networks of  workers in the Member  States and to give priority  to the 
training of workers who work  with disadvantaged young people, in line with the concern 
of the Member States. 

Action C:  Cooperation between Member States1 structures 

37.  Experience  has  shown  that  the  need  to  promote  European  cooperation  between  public 
and  private  structures  (government  and  non-government)  working  in  or  responsible  for 
the youth field, is a conditio  sine qua non for  the development of a genuine Community 
action in this context. 

38.  There  should  be  particular  focus  on  those  responsible  for  regional  and  local  structures 
who have little or no chance for  European  level  contacts and for  whom  an action of this 
type represents an undeniable bonus. 

Action D:  Exchanges with non-member countries 

39.  Article  126  of  the EC  Treaty,  as  modified  by  the  Treaty  on  European  Union,  provides 
not  only  for  the  development  of  exchanges  of  young  people  and  socio-educational 
workers, but also for  cooperation  with non-member countries. 

40.  Under the budget heading  for  priority  actions  with non-member  countries, the  European 
Parliament  has  asked  the  Commission  to  implement  this  cooperation.  However,  in  view 
of  the  fact  that  these  activities  were  not  supported  within  a  multi-annual  action 
programme  but  on  an  annual  basis,  Community  action  at  this  level  has  been  sporadic. 
The possibilities  opened  up  by  this  budget heading  has nevertheless  made  it  possible  to 
gauge  the  interest  and  motivations  of  associations  and  groups  of  young  people,  and 
especially  to  highlight  the  urgent  need  to  lay  solid  and  durable  foundations  in  the 
countries concerned. 

41.  The  exchanges  proposed  under  Action  D  are  Community  exchanges  with  non-member 
countries  which  respond  principally  to  two  criteria,  the  one  of  solidarity  and  the  one 
stipulating  the  inclusion  of  two  or  more  Member  States  and  which  include  an  explicit 
European  dimension. 

The youth  exchange  activities  envisaged  in  the  framework  of  this  action  are  equivalent 
in  terms  of  their  objectives  and  their  educational  profile  to  the  youth  exchanges 
supported  in the framework  of intra-Community  actions, 

42.  Solidarity  amongst  young  people  beyond  the  frontiers  and  catering  for  the  demand  of 
young people in non-member  countries to experience  democracy, may be what is needed 
to  tilt  the  balance  in  favour  of  a  world  in  which  the  generations  of  young  people  to 
come will be happy to live. 

10 

43.  The need  to  consolidate  inter-Community  activities  and  the basis  for  the  development  -
so  important  to the young  people  concerned  - of  exchanges  with  non-member  countries 
prompts the Commission  to propose a specific  action for  exchanges with these countries. 

As for the other actions of the programme, die Commission  will consult the Consultative 
Committee  according  to  Article  5  of  the  Decision,  in  order  to  make  die  necessary 
arrangements  to  best  use  the  available  funds,  especially  concerning  the  choice  of  non-
member countries affected  by the actions. 

44.  The Commission  accordingly  proposes  a two-stage process for  all  third  countries, a first 
phase covering the first three years of the programme  (including an assessment after  the 
first two years) and a consolidation  phase covering the last two years of the programme. 

45.  The  preliminary  phase  should  firstly  enable  those  who,  both  in  Member  States  and  in 
third  countries,  already  have  some experience  of these  exchanges to  make progress, and 
also  to  allow  those  with  little  or  no  experience  to  start  up.  Furthermore,  the  accent 
during  this  first  phase  should  be  placed  on  establishing  or  consolidating  the  basis 
essential  to  the  development  of  exchanges  as  such  both  in  terms  of  structures  and  in 
terms of human resources, by  a transfer  of appropriate training experience and actions. 

46.  The experience gained during the preliminary  phase  and the  assessment  envisaged  at the 
end  of  the  second  year  should  make  it  possible  to  circumscribe  the  specific  exchange 
activities to be developed  for  each  group of non-member  countries concerned  during the 
consolidation  phase.  For  certain  countries  there  is  also  a  case  for  considering  what 
arrangements  to  introduce  experimentally  during this  consolidation  phase  as regards  any 
structures which might in the future  have to act as national agencies. 

Action E;  Information of young people and research on youth 

47.  Developing  and promoting  a youth  information  policy  nationally,  regionally  and  locally 
is,  of  course,  a  matter  for  the  Member  States  themselves.  As  regards  the  Community, 
this  does not  only  involve catering  for  the need  for  information  on the  Community, but 
also promoting  exchange of  useful  information,  particularly  between the Member States, 
and  exchange  of  knowhow in  this field  in  order  to  cater  for  the needs of  young people 
and  also  to  contribute  to  improving  the  teaching  approaches  undertaken  with  the 
different  target groups. 

48.  The Commission  accordingly  intends to  use  "Youth for  Europe III'  to  develop  initiatives 
targeted  at those  with  the  potential  to  disseminate  information  to  a  wide  audience  both 
in  terms  of  instruments  such  as  audiovisual  media  and  data  banks  and  in  terms  of  the 
information  points  constituted  by  the  structures  set  up  by  the  Member  States,  existing 
European networks of youth information  centres, or youth hostels. 

49.  The new Commission  policy on information  and communication  which specifies  the role 
of  the services  regarding  information  related  to  their  activities  in  contrast  to the general 
information  role  of  DG  X,  implies  a  coherent  and  rational  field  of  action  for  youth 
matters, avoiding dispersal  and which has continuity. 

11 

In  any  case,  the  Commission  Communication  to  the  Council  and  the  European 
Parliament  on  "Actions  Plan  on  youth  information"  reaffirms  the  importance  for  die 
Community of the information  efforts  at European level. 

The  scope  for  cooperation  with  DG  X  for  youth-targeted  information  campaigns  on 
general  themes  of  particular  concern  to  them  (drugs,  figjit  against  AIDS,  etc.)  should 
also be considered in this context. 

50.  Lastly,  no  action  undertaken  in  the  youth  field  at  Community  level  can  be  envisaged 
without  a  specific  input  in  terms  of  research  to  highlight  the  situation  of  young 
Europeans and also to identify  and implement the common  interests which constitute the 
basis for  Community  action for young people. 

51.  As  in  the  case  of  information  for  young  people,  the  Commission  wants  to  reach  the 
multipliers  and  promote  the  exchange  of  knowledge  and  information  between  Member 
States and between them and the Commission. 

52.  What has been  undertaken  by the  Commission  in this  context  is thus primarily  intended 
to  promote  and  encourage  Europe-wide  multi-disciplinary  cooperation  in  research  and 
documentation  around  the  situation  of  young  people  in  Europe,  and  to  encourage  the 
collection  and dissemination  of  information. 

Conclusions 

53. 

'Youth  for  Europe III'  as presented  in  the proposal  for  a Decision  and  its  Annexes aims 
to  provide  the  drive  needed  to  develop  and  reinforce  genuine  Community  cooperation 
in the youth field. 

The programme purports to bring a fresh  dynamism  and provide an additional  dimension 
to  the  Community's  overall  action  for  young  people  and  thus  round  off  existing 
measures  in  the  field  of  education,  vocational  training  and  employment,  permitting  die 
broadening  out  of  the  European  and  non-member  country  levels  of  the  field  of 
experimentation,  learning  and  innovation  for  an  increased  number  of  young  people, 
youth workers and those responsible in this context. 

In  this period  of  economic  recession  and  unemployment  which  affects  young  people in 
particular,  the  credibility  of  Community  action  in  die  eyes  of  many  of  these  young 
people  will, of  course, depend on its capacity to  solve the economic and social problems 
which  affect  them.  It  will  also  depend,  however,  on  die  Community's  commitment  to 
dialogue  with these young people and give them a  sense of responsibility  as Community 
citizens. 

54.  Exchange and mobility  schemes acknowledged as successful  by everyone during the first 
two  phases  of  the  "Youth  for  Europe"  programme  and  strengthened  by  the  priority 
actions  in  the  youth  field  have  paved  the  way  for  a  broader  concept  which  is  the 
forerunner  to  a  Community  youth  policy  at  all  levels: the young  people  themselves, the 

12 

youth  workers,  the  structures  involved  and  those  responsible  at  Community  level  or  in 
non-member  countries.  'Youth  for  Europe  III'  should  make  it  possible  to  attain  this 
objective. 

55.  Alongside  these  general  considerations,  it  should be  stressed  how  important the  proposal 
for  a Decision  and its Annexes  on  'Youth  for  Europe  III' are in  the  fight  against  racism 
and xenophobia.  Indeed,  Community  action  to  encourage  understanding  between  young 
people  beyond  the  frontiers  is  essential,  for  it  is  one  of  the  guarantees  for  peace, 
cohesion  and  solidarity  for  die  future.  The  fight  against  racism  and  xenophobia  thus 
constitutes  a major added value  for Community  action  in the youth field. 

56.  Considering  the  very  high  degree  of  decentralization  of  the  programme  and  the 
experimental  character  of  this  decentralisation  at  the  Community  level,  the  first  two 
phases for  the Youth  for Europe programme  have been a proving  ground for  the  concept 
of  subsidiarity  advocated  by  the  Treaty, for  the  Member  States  and for  the  Commission. 
Furthermore,  the  empirical  and  specific  implementation  of  priority  actions  has  made  it 
possible  to  at  least  complement  the  experience  acquired  through  the  implementation  of 
the Youth  for Europe programme. 

'Youth  for Europe III' incorporates  the  experience  of  the first two  phases  and that of the 
priority  actions  and will  have to be  based  on  complementarity  between  the  Community's 
role  and  that  of  the  Member  States,  a  complementarity  which  comes  out  in  enhanced 
cooperation  with  the  competent  national  authorities  and  the  youth  organizations 
represented  at the Community  level  by the Youth Forum. 

57.  The  overall  budget  of  ECU  157  million  over  five  years  will  make  it  possible  to  reach 
a  substantial  number  of  young  people  either  directly  or  through  the  multiplier  aspects 
of  all  the  actions envisaged. 

58.  The  Community  must  show  young  people  that  its  political  commitment  matches  its 

expectations  as regards their participation  in its  construction. 

13 

Proposal for a 
EUROPEAN PARLIAMENT AND COUNCIL DECISION 

adopting the "Youth for Europe III" programme designed to promote 
the development  of exchanges among young people and of 
youth  activities in the Community 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in  particular 
Article  126 thereof, 

Having regard to the proposal  from  the Commission(1), 

Having regard to the opinion  of the Economic and Social  Committee, 

Having regard to the opinion of the Committee of Regions, 

1.  Whereas on  16 June  1988 the  Council  adopted  Decision  88/348/EEC adopting  an action 
programme  for  the  promotion  of  youth  exchanges  in  the  Community  -  "Youth  for 
Europe"  programme(2) and,  on  29 July  1991, Decision  91/395/EEC  adopting  the  "Youth 
for  Europe II" programme (second  phase)(3) for  the period  running  from  1 January  1992 
to 31 December  1994; 

2.  Whereas  Council  Decision  87/569/EEC  of  1 December  1987  concerning  an  action 
programme  for  the  vocational  training  of  young  people  and  their  preparation  for  adult 
and  working  life(4)  (PETRA),  as  amended  by  Decision  91/387/EEC(5),  sets  out  to 
encourage  the  development  of  entrepreneurial  skills,  creativity  and  initiative  among 
young people; 

3.  Whereas  in  Council  Decision  89/489/EEC  of  28  July  1989  establishing  an  action 
programme  to  promote  foreign  language  competence  in  the  European  Community 
(Lingua)(6)  it  was  stressed  that  the  "Youth  for  Europe"  programme  would  not  fully 
achieve  its  stated  objectives  without  accompanying  measures  to  promote  training  in 
foreign  languages,  and  whereas  die  Lingua  programme  provided  assistance  only  for 
projects  organized by teaching and training establishments; 

0) 

(2) 

(3) 

(4) 

(5) 

(6) 

OJNo 
OJNoL  158, 25.6.1988, p. 42. 
OJ No L 217, 6.8.1991, p. 25. 
OJNoL346,  10.12.1987, p. 31 
OJ No L 214, 2.8.1991, p. 69. 
OJNoL239,  16.8.1989, p. 24. 

14 

4.  Whereas the Resolution  of the  Council  and of  the Ministers  meeting  within  the Council 
of  26 June  1991  on priority  actions  in  the youth field(7) affirmed  the  wish, on  the basis 
of  experience  acquired  in  the  framework  of  the  "Youth  for  Europe"  programme,  to 
intensify  their  cooperation  on  exchanges  and  mobility  of  young  people  with  the  EFTA 
countries,  with  the  Central  and  Eastern  European  countries  and  in  the  context  of  the 
North-South  dialogue; 

5.  Whereas the  European  Parliament  has  repeatedly  actively  supported  the  development  of 
actions and programmes  at Community  level  in the youth field, in particular  in its report 
of 24 May  1991 on  "Community  policies and their impact on youth"; 

6.  Whereas  the  conclusions  of  the  Edinburgh  European  Council,  meeting  on  11  and 
12 December  1992, reiterated  at  the  Copenhagen  European  Council,  meeting  on  20 and 
21 June  1993,  underline 
the 
independence  and  creativity  of  young people  must  be  maintained  and  that  vigorous and 
effective  measures must be taken  to combat racism  and xenophobia, particularly  through 
the education  of young people; 

the  requirement 

that  activities 

to  develop 

taken 

7.  Whereas  youth  exchanges  are  an  appropriate  method  for  improving  understanding  and 
becoming  better  acquainted  with  the  diverse  cultures  of  the  Member  States,  and 
therefore  help  strengthen  and  deepen  the  whole  fabric  of  interrelations  being  woven 
between  the  people  of  Europe;  whereas,  in  that  context,  young  people's  active 
participation  in  preparing,  implementing  and  monitoring  their  own  projects  can  be  used 
to  underpin  the  relations  between  young  people  in  the  Community  in  a  framework  of 
active citizenship; 

8.  Whereas,  in  that  respect,  it  is  important  to  promote  the  active  participation  of 
disadvantaged  young  people  in  these  activities;  whereas  it  is  necessary  to  promote  this 
by the selection  of  actions  centred on the social  and educative  role of youth  leaders; and 
whereas  the  establishment  of  such  a  Community  action,  on  the  basis  of  previous 
experience, gives added value at Community level; 

9.  Whereas  the  Commission  Communication  to  the  Council  and  the  European  Parliament 
of  2 September  1992 on the Youth  Information  Action  Plan  affirmed  the importance  for 
the Community  of an information  drive among young people at European level; 

10.  Whereas  it  is  necessary  to  reinforce  the  links  between  the  actions  undertaken  under  the 
"Youth  for  Europe"  programme  and  those  pursued  within  the  framework  of  social 
policy,  the  fight  against  racism  and  xenophobia,  and  cooperation  with  non-member 
countries; 

11.  Whereas  Community  action  in  the  youth  field  is  developed  in  the  context  of  the 
objectives  set out in  Article  126 of the Treaty, that  is the promotion  of youth  exchanges 
and of youth  workers, in  conjunction  with cooperation  with non-member countries; 

(7)  OJ No C 208, 9.8.1991, p. 1. 

15 

12.  Whereas  implementation  of  the  "Youdi  for  Europe"  programme  must  be  based  on 
decentralized  structures  set  up  by  Member  States  for  the  purpose  of  reinforcing 
cooperation  with  the  national  authorities  responsible  for  youth  questions,  whilst 
continuing  to  respect  the  principle  of  subsidiarity,  as  defined  in  Article  126  of  the 
Treaty, 

HAVE DECIDED AS FOLLOWS: 

Article  1:  Establishment of die 'Youth for Europe 111" programme 

1.  This  Decision  establishes  the  Community  action  programme  "Youth  for  Europe  III" 
(hereinafter  referred  to  as  "the  programme")  covering  youth  exchanges  inside  and 
outside the Community  and youth policy. 

The programme  is adopted  for  the period  running  from  1 January  1995 to  31 December 
1999. 

2. 

For  the  purposes  of  this  Decision,  "youdi  policy"  means  any  measures  undertaken  for 
young people by Member  States which, in  the specific  pedagogical  context of  the youth 
sector, aim to: 

allow  young  people  to  play  an  active  role  in  society  and  its  institutions,  and 
encourage them to do so; 

encourage  independence,  creativity  and  an  entrepreneurial  spirit  among  young 
people, in particular at the social, civic, cultural and environmental  levels; 

allow  young  people  to  express  their  opinions  on  die  organization  of  society  and 
encourage the various public authorities involved to take heed thereof; 

combat all forms  of exclusion, including racism  and xenophobia; 

encourage  young  people  to  become  aware  of  and  recognize  the  intrinsic  value of 
cultural  diversity; 

allow young  people  to  view  the  European  Community  as an  integral  part  of their 
political, cultural  and social  environment. 

3.  The  programme  shall  not  cover  projects  carried  out  in  the  context  of  education  and 

vocational training structures. 

16 

Article 2:  Objectives 

1.  The  main  objective  of  the  programme  is  to  contribute  to  fostering  quality  education  by 
developing  exchange  activities  within  the  Community,  by  other  supplementary  activities 
in  the youth  policy  field  connected  with  such  exchanges,  and  by  exchanges  with  non-
member countries with which the Community has cooperation  agreements. 

2.  Against this backcloth the programme's specific  aims are to: 

(a)  promote  youth  exchanges  for  young  people  aged  15  to  25  living  in  the 

Community; 

(b) 

(c) 

(d) 

support  projects  and  initiatives  run  by  young  people  for  young  people,  which 
allow  them  to  play  an  active  and  acknowledged  role  in  society  and  to  develop 
their personal  abilities, creativity, sense of solidarity  and independence; 

allow  young  people  to  benefit  from  joint  Community-level  actions  linked  to  the 
general  aims of youth policy  at national or Community level; 

step up cooperation  among Member  States  and between  them  and the Commission 
through  exchanges of experience and joint  initiatives at Community  level, and thus 
to  support  Member  States  in  their  endeavours  to  improve  the  quality  of  services 
and  measures for  young  people, in  particular  through  activities  aimed  at providing 
young people with  information; 

(e)  promote exchanges with young people in non-member countries. 

Article 3:  Positive action for disadvantaged young people 

1. 

Special  attention  will  be  paid  to  ensuring  that  disadvantaged  young  people  have  access 
to  activities  run  under  the  programme  and  to  improving  the  quality  of  the  projects 
undertaken  for this target group. 

The term  "disadvantaged young people" refers  to young people who experience the most 
difficulties  in  being  included  in  the  existing  action  programmes  both  at  Community  as 
well  as  national,  regional  and  local  levels  due  to  cultural,  social,  economic,  physical, 
mental or geographic reasons. 

2.  The  Commission  and  the  Member  States  shall  ensure  that  at  least  one  third  of  the 
appropriations  made available for  Actions  A, B and  C set out  in the Annex are used  for 
the  benefit  of  disadvantaged  young  people  and  that  a  similar  effort  is  undertaken  with 
regard to Actions D and E. 

17 

Article 4;  Cooperation with Member States 

1.  The  Commission  shall  encourage  Member  States  to  take  appropriate  measures  to 
preserve  and  develop  the  structures  set  up  to  achieve  the  objectives  of  the  programme 
and  to  make  suitable  arrangements  for  evaluating  and  monitoring  die  actions  set  out  in 
the programme and for  applying consultation  and selection mechanisms. 

2.  The  Commission  shall  also  support  Member  States  in  their  efforts  to  develop  youth 

policy in the regions where few opportunities have existed hitherto. 

3.  Each  Member  State shall  endeavour,  as far  as possible,  to adopt  the measures necessary 
to  ensure that young  people participating  in  transnational  activities  and  exchanges under 
the  programme  do  not  lose  their  entitlements,  in  particular  those  linked  to  social 
security. 

Article 5:  Committee 

The  Commission  shall  be  assisted  by  a  committee  of  an  advisory  nature  composed  of  the 
representatives  of  the  Member  States  and  chaired  by  the  representative  of  the  Commission. 
A  representative  of  the  Council  of  Europe  and  of  the  Youth  Forum  of  die  European 
Community  shall participate in the committee as observers. 

The  representative  of  the  Commission  shall  submit  to  the  committee  a  draft  of  the  measures 
to  be  taken.  The  committee  shall  deliver  its  opinion  on  the  draft,  within  a  time  limit  which 
the  chairman  may  lay  down  according  to  the  urgency  of  die  matter,  if  necessary  by  taking a 
vote. 

The opinion  shall  be recorded  in  the  minutes; in  addition,  each  Member  State  shall  have  the 
right to ask to have its position recorded in the minutes. 

The  Commission  shall  take the  utmost  account  of  the  opinion  delivered  by  the  committee.  It 
shall inform  the committee of the manner in which its opinion has been taken into account. 

Article 6:  Implementation 

1.  The Commission  shall  ensure the implementation  of the programme. 

2.  Decisions  on  the  general  balance  between  the  Member  States  participating  in  the 
programme  and  the  different  types  of  actions  shall  be  adopted  in  accordance  with  the 
procedure set out in Article 5. 

18 

Article 7:  links with other Community actions 

The Commission  and the  Member  States  shall  ensure that this  programme  is  compatible with 
and  complementary  to  other  actions  undertaken  for  young  people  by  the  Member  States  and 
the Community. 

Article 8:  Monitoring and evaluation 

The  Commission  shall  take  the  necessary  measures  to  ensure  the  monitoring  and  continuous 
evaluation of the programme. 

During  the  third  year  of  the  programme  the  Commission  shall  present  an  evaluation  report 
covering the first  two years of programme  implementation. 

Done at Brussels, 

For the EuropeanParliament 

For the Council 

The President 

The President 

19 

ANNEX 

There  are  to  be  five  main  actions,  each  with  its  own  specific  objectives,  in  pursuit  of 
the general objectives  defined  in Article 2 in order to ensure greater  cohesion among the 
various activities in the youth field: 

(1)  Action  A:  Intra-Community activities directly involving young people 
(2)  Action B:  Youth workers 
(3)  Action C:  Cooperation between Member  States' structures 
(4)  Action D:  Exchanges with non-member  countries 
(5)  Action E:  Information  for young people and youth  research 

2.  Action A; Intra-Community activities direclry involving young people 

2.1 

Involvement,  initiative  and  solidarity  form  the  main  foundations  for  the  specific 
objectives  of Action A which  are based on two major  elements: 

Action  A.I: 
Action A.II: 

Youth  exchanges and mobility 
Spirit of initiative, creativity  and solidarity  among young people 

2.2  Action A.I: Youth exchanges and mobility 

1. 

The  Community  shall  continue  to  develop  its  system  of  direct financial assistance 
for  bilateral  exchanges  and  multilateral  exchanges  and  encounters  lasting  at  least 
one  week  and  taking  place  on  the  basis  of  joint  projects  within  the  Community 
between  groups of young people aged  15 to 25 from  two or more Member States, 
to  the  exclusion  of  projects  operated  in  die  framework  of  education  or  vocational 
training structures. 

Special  attention  shall  be  paid  to  interlinking  these  projects  with  other  youth 
activities provided for  in the current programme 
nr»tivitif»ç  nrtwriAp'A  fr»r  in  thft  r.nrrftnt  n r n o T n m m fi 

Assistance  for  exchanges  under  this  action  may  not  exceed  50%  of  the  total 
expenditure  involved  (travel  and  programme),  except  as  provided  for  in  Point  5 
below. 

When  calculating the  assistance to be granted  to  each Member State, account must 
be  taken  of  the  need  to  guarantee  a  balance  in  the  flow  of  exchanges  and  equal 
opportunities  in  gaining  access,  together  with  certain  elements  in  the  situation  of 
young  people  in  each  country.  In  this  context,  such  calculation  must  take account 
of  weighting  factors  currently  being  determined  in  consultation  with  the Member 
States  for  use  as  a  guideline:  geographic  remoteness,  re-balancing  of  exchange 
flows  taking  account  of  the  linguistic  situation  in  Member  States,  the  gross 
national product of each country taking part, etc. 

20 

As  part  of  the  positive  action  for  disadvantaged  young  people  at  the  geographic, 
mental,  physical,  cultural,  social  or  economic  level,  in  addition  to  the  minimum 
of  30% of  the  appropriations  being  made  available  for  this  action  and  earmarked 
for  disadvantaged  young people  in  accordance  with  Article  3 of  this Decision,  the 
Commission  shall  set  up a reserve fund  for  granting financial assistance  exceeding 
the  50% stipulated in Point  3 above or for  supporting, if necessary, other  activities 
likely to foster  participation  by disadvantaged young people. 

2.3  Action A.II: Spirit of initiative, creativity and solidarity among young people 

A.II.l: Youth initiatives 

1. 

2. 

3. 

4. 

The Community  shall  support projects  in  which young people actively  and directly 
participate  in  innovative  and  creative  initiatives  and  initiatives  centring  on 
solidarity  among young people at local, regional, national or European level. 

Such  activities  may  be  linked  to  the  exchange  and  mobility  activities  pursued 
under Action A.I. because they form  the first stage or the outcome thereof. 

Initiatives  to  combat  all  forms  of  exclusion  shall  be  encouraged  and  stimulated  in 
a specific  manner. 

Furthermore,  special  attention  shall  be  accorded  to  initiatives  involving  cultural 
and  artistic  expression  by  young  people  at  Community  level  and  aimed  at 
arranging joint artistic productions. 

5.  Assistance  for  youth  initiatives  may  be  spread  over  two  consecutive  years  and 
cover  projects  at  local,  regional  or  national 
level  and  promotion  of  the 
transnational  aspect,  as  well  as  effective  establishment  of  cooperation  networks  or 
partnership schemes. 

A.II.2: Periods of voluntary service 

1. 

The  Community  shall  support  transnational  projects  aimed  at  allowing  young 
people  to  undertake  periods  of  voluntary  service  in  another  Member  State.  Such 
activities  shall  be  aimed  at  fostering  a  sense  of  solidarity  among  young  people, 
promoting  a form  of  social  creativity  among young  people  in the Community  and 
giving  them  the  opportunity  to  try  out  new  forms  of  work  benefiting  the 
community  at large. 

2.  As  in  the  case  of  the  youth  initiatives  supported  under  Action  II,  such  activities 
may be linked  with the  exchange  and mobility  activities  pursued  under  Action  A.I 
because they constitute the outcome or the origin thereof. 

21 

3. 

The  Community  shall  also  ensure,  during  the  preliminary  phase, that  networks  of 
cooperation  are  developed  between  Member  States  and  the  creation  of  adequate 
infrastructures  fostered. 

During  this  preliminary  phase  priority  shall  be  accorded  to  study  visits,  in-service 
training  in  existing  structures,  contact  seminars  and  pilot  projects  in  this  field 
directly  involving young people. 

4. 

This  provision  does  not  relate  to  community  service  activities  or  activities  which 
are an alternative to compulsory  military service. 

3.  Action B: Youth workers 

3.1 

In  addition  to  the  activities  directly  involving  young  people,  the  Community  shall  also 
support  activities  targeted  at  socio-educational  instructors  directly  responsible  for  youth 
activities or connected therewith, and at those responsible for their training. 

3.2  The  term  "socio-educational  instructors"  or  "youth  workers"  refers  to  people  working 
in the youth field as defined  in Point  (a) above, and working directly  with young people 
outside the framework  of  education  and  training  structures  whether  on  a paid  or  unpaid 
basis. 

Two categories of activity  shall be considered: 

3.3  Action B.I: Indirect support for Action A 

(i)  Activities  (particularly  brief  study  visits,  partnership  exchanges,  contact  seminars) 
aimed  at  facilitating  the  search  for  partners  and/or  launching  exchange  or 
cooperation  projects  and  making  youth  workers  aware  of  the  reality  in  the 
Community  and the youth  work being done in the various Member States. 

(ii)  Training  of  youth  workers,  with  priority  going  to  training  those  actively  involved 

with disadvantaged young people. 

3.4  Action B.II: Direct support for European cooperation on training youth workers 

(i)  Activities  (in  particular  study  visits,  seminars,  in-service  training)  allowing  those 
responsible  for  training  youth  workers  in  the  Member  States  to  exchange 
experience and  information. 

(ii)  Activities  (in  particular  development  of  training  modules  common  to  Member 
States,  materials  for  training  youth  workers,  studies)  aimed  at  promoting  a 
Community  dimension  in training and further  training for youth workers. 

22 

4.  Action C: Cooperation between Member States* structures 

4.1  Assistance  shall  be  given  for  activities  (in  particular  study  visits,  seminars,  in-service 
training)  aimed  at  promoting  cooperation  between  Member  States'  structures,  both 
governmental  and non-governmental, responsible for  and working in the youth field. 

4.2  Activities  supported  under  this  action  shall  cover  people  responsible  for  youth 

associations as well  as public services in charge of youth questions. 

4.3  Special  attention  must be paid to those responsible for  regional  and local structures. 

4.4  A  reserve  fund  shall  be  set  up  by  the  Commission  to  support  pilot  projects  aimed  at 

setting  up multilateral  networks among the Member States' structures. 

5.  Action D: Exchanges with non-member countries 

5.1  The  Community  shall  support  youth  exchange  activities  involving  non-member 

countries. 

5.2  During  the  first  three  years  of  the  programme  (preliminary  phase)  assistance  may  be 

granted to: 

(a)  youth  exchange  activities  such  as  those  supported  under  Action  A.I  of  this 

Decision, and to pilot exchanges; 

(b)  activities  aimed  at  laying  down  solid  and  lasting  foundations  for  improving  the 
quality  and  ensuring  diversification  of  such  exchanges.  Such  activities  shall  cover 
youth  workers, those responsible for youth  structures  and the information field. 

5.3  During the last two years of the programme (consolidation  phase) priority  shall  be given 
to  activities directly  involving young  people, the forms  and  arrangements  of  which  must 
be  adapted  in the light  of the findings from  evaluation  of  the preliminary  phase  and  the 
overall  evaluation of the programme. 

6.  Action E: Information for young people and youth research 

6.1  The  Commission  may  undertake  measures  aimed  at  encouraging  and  promoting 
cooperation  activities  at  European  level  concerning  provision  of  information  for  young 
people and youth research. 

6.2  As  regards  provision  of  information  for  young  people,  the  Community  will  have  a 
decisive  role  to  play  among  multipliers  of  information  and  shall  base  its  action  mainly 
on five major areas: 

23 

developing the capacities of the  structures set  up by Member  States in die process 
of providing information  for young people; 

using existing youth information  networks at European level; 

creating youth media networks for  and/or run by young people; 

using the media to promote the programme's objectives; 

operating and networking data banks. 

6.3  As  regards  youth  research,  the  Community  shall  focus  its  efforts  on  analysis  and 
dissemination  of  data,  as  well  as  use  thereof  for  socio-economic  research  purposes, 
promotion  of  exchanges  of  know-how  among  Member  States  and  between  Member 
States and the Commission, and promotion of Community cooperation in this  field. 

6.4  The Community  shall cooperate closely with the Council of Europe and the international 

organizations active in the youth information  and youth research  field. 

24 

CURRENT SITUATION 

YOUTH FOR EUROPE 

Exchanges 
Short Study Visits 
Voluntary Service Activities 
Training 

PRIORITY ACTIONS IN THE YOUTH FIELD 

Intensification of cooperation between structures 
responsible for youth work in the Member States 
Information for young people 
Youth Pilot Projects - Stimulating  the initiative and 
creativity of young people 
Cooperation in the training of youth workers, 
particularly with regard to the European dimension 
Support for initiatives of Community interest developed 
by youth organisations 
Exchanges of young people for cultural purposes 
Exchanges with non-member  countries  (Central and  Eastern 
European countries, Latin American countries, 
Mediterranean countries) 

PETRA 

Youth Initiative Projects 

TEMPUS 

Youth exchanges 
Study visits 
Training 

PROPOSED  SITUATION 

YOUTH FOR EUROPE III 

ACTION A 

Intra-Community activities directly involving young 
people 

* 

* 

A.I.  Youth exchanges and mobility  (Al) 

A.II  Spirit of initiative, creativity and 

solidarity among young people  (A3, B3, B6, 
CI) 

ACTION B 

Youth workers  (A2, A4, B4) 

ACTION C 

Cooperation between Member States'  structures 
(Bl, B5) 

ACTION D 

Exchanges  withnon-member  c o u n t r i es 

(B7,  D) 

Information elements about the programme and other 
Community activities in cooperation with DG X 

ACTION E 

Information for young people and youth research  (B2, E) 

1. 
2. 
3. 

E. 

FINANCIAL STATEMENT 

1. 

Tide of  operation 

Youth  for  Europe 

2. 

Budget heading  involved 

B3-1011  Youth  Policy  (Ex heading  B3 -1010  and B3  -  1011) 

3. 

Legal  basis 

Council  Decision  No 94/ 

/EEC of 

1994 (OJ L /94) 

4. 

Description  of  operation 

4,1.  General  objective 

The  main  objective  of  the  "Youth  for  Europe  III"  programme  is  to  contribute  to 
fostering  quality education by developing exchange activities in the broad sense within 
the Community, other supplementary  activities in the field  of youth policy  associated 
with  such  exchanges  and  exchanges  with  non-member  countries  with  whom  the 
Community  has cooperation  agreements. 

The  proposed  activities  in  the  context  of  the  'Youth  for  Europe  III" programme  are 
aimed at the informal  Education field and a policy centred on Young people which can 
be  termed  'Policy  for  Youth'.  These  policies  run  alongside  more  formal  operations 
aimed at information  structures and training which come under sectoral policies. They 
cannot  be  seen  in  the  same  area  given  the  differences  in  terms  of  target  people, 
objectives  and  the  responsible  national  authorities.  They,  therefore,  merit  a  specific 
programme. 

The  Commission,  in  proposing  this  programme,  is  continuing  its  approach  in  the 
education  and training  field  as laid down  in its document  'Directory  for  Community 
Action  in  the field of Education  and  Training* (COM  (93)  183 final). 

In this  context, the  aims of the programme  are to: 

(a)  promote  youth  exchanges  in  the  European  Community  to  benefit  an  increasing 
number  of  young  people  aged  between  15  and  25  living  in  the  European 
Community; 

(b)  support projects and initiatives run by young people for young people which allow 
them  to  play  an  active  and  acknowledged  role  in  society  and  to  develop  their 
personal  abilities,  creativity,  sense of  solidarity  and  independence; 

26 

(c)  allow young people to benefit from joint Community-level actions associated with 

the general objectives of youth policy at national or Community level; 

(d)  increase cooperation between Member States, and between Member States and the 
Commission, through the exchange of experiences and through joint initiatives at 
Community  level,  and  support  Member  States  in  their  efforts  to  improve  the 
quality of services and measures for young people, in particular through activities 
aimed at providing young people with  information; 

(e)  promote exchanges with young people from  non-member  countries and, in this 
context,  establish  solid  and  lasting  foundations  for  improving  the  quality  and 
ensuring diversification  of these exchanges. 

4.2.  Period covered and arrangements for renewal or extension 

Five-year action programme (1995-1999). 

Renewal on the basis of results obtained following  an evaluation of the programme. 

5. 

Classification of expenditure/revenue 

5.1.  DNO 

52 

CD 

5.3.  Types of revenue involved : None 

6. 

Type of expenditure or  revenue 

- 

100% subsidy: no 

-  Subsidy for joint financing with other sources in the public and/or private sector: 

yes; projects are normally jointly financed to a maximum of 50%, except in the 
case of projects involving disadvantaged young people, for whom the Community 
contribution may amount to 75% of the costs incurred. 

7. 

Financial impact 

7.1.  Method of calculating total cost of operation (definition of unit costs) 

Set out in accordance with the Annex to the proposal for  a Council Decision. 

27 

7.2. 

Itemized breakdown of cost 

Breakdown 

Budget  1995 

1996 

14,5' 

15.2 

in current ECU million 

1998s 

1999 

TOTAL 

17.0 

17,4 

80.000 

1997 

15.9 

Action  A  -  Intra-Community 
activities directly  involving young 
people; exchanges of and  mobility 
for young people; initiatives  for 
young people;  periods of 
voluntary  service. 

Action  B -  Youth  leaders: indirect 
support to Action  A - short-term 
study  visits;  partnership 
exchanges; contact  seminars; 
training  for  leaders; activities to 
encourage linguistic training  for 
leaders. Direct support  for 
European  cooperation  in the 
training  of leaders - study visits; 
seminars; in-service  training; 
development  of common  training 
modules; training materials  for 
leaders; studies. 

Action  C  -  Structural  cooperation 
between  Member  States: study 
visits;  seminars;  in-service 
training; pilot  projects. 

Action  D -  Exchanges with non-
member  countries - Central  and 
Eastern  Europe, Latin America, 
the Mediterranean  countries -
exchange activités; study visits, 
in-service training; training 
courses; seminars;  conferences; 
production  of suitable  materials 
and  information  campaigns. 

Action  E - Information  for young 
people and  research  into youth 
issues -  improving  information 
flow to young people;  European 
youth  information  networks; 
media networks for  young people; 
networking and use of data banks. 

Accompanying  measures  -
Technical  expertise and  the 
necessary  support for the 
implementation  of the system  of 
grants and  subsidies; support  for 
activités carried out by national 
agencies; meetings of experts, 
conferences. 

2.32 

2.4 

2.450 

2.6 

2.7 

12.450 

0.5 

0.550 

0.650 

0.8 

0.9 

3.400 

6.53 

7,5 

8.5 

9.8 

11.0 

43.300 

1.5 

1.550 

1.6 

1.7 

1.8 

8.150 

1.74 

1.8 

1.9 

2.1 

2.2 

9.700 

TOTAL 

27.0 

29.0 

31.0 

34.0 

36.0 

157,0 

28 

Notes 

The  1995  Budget  can  be  compared  with  the  1994  Budget  (the  last  year  of  Youth  for 
Europe II) on the basis of  the following  APB  1994  figures: 

APB  1994  (B3-1010  and B3-1011) 

14.5 

The inclusion  of  certain  elements of  Youth  for Europe III  5.5 
already  existing  but not financed  in YFE II. 
(financed  by  internal  reorganization) 

20.0 

The  difference  between  this ECU 20.0  million  and  die  1995  budget  (ECU 27.0  million) 
corresponds with  quantitive  and qualitative progress of  YFE III compared to YFE II. 

1 

2 

3 

4 

-  ECU 1  million awarded to Action A with the aim of safeguarding the current level 
of  exchanges  for  existing  Member  States  within  the  Community  in  spite  of  the 
increase which, taking account of peripheral  criteria included in the programmes, 
would tend to penalise the existing Member States as opposed to the new Member 
States. 

ECU  1 million for voluntary service activities to obtain the critical level necessary 
(Pilot Action  in  1994); 

ECU  500  000  for  the  development  of  transnational  local  initiative  networks  for 
young people and of the Community  dimension of these initiatives (new action). 

-  ECU  1  million  for  awarded  to  Action  B  to  finance  the  training  of  leaders  for 
disadvantaged  young  people  as  well  as  the  linguistic  preparation  in  the  more 
general  field  of youdi  leader training (new actions). 

-  ECU  1.5  million  to  develop  cooperation  between  the  European  Community  and 
non-member  countries,  the  Mediterranean  and  Latin  American  countries  in  the 
field  of  exchanges of young people and youth  activities. 

-  Minimal  increases for  all  the other activities of  the programme. 

The distribution of the appropriations asked for between the Actions (A to E) and 
especially those concerning the additional credits on the different headings will be 
determined  by  the global  weight  of  allocated  appropriations  from  die budgetary 
authority. 

29 

7.3. 

Indicative schedule  of appropriations 

7.3. 

Schedule  for proposed new  operation 

Commitment 
appropriations 

Payment 
appropriations 

1995 

1996 

1997 

1998 

in  current  ECU  million 

1995 

1996 

1997 

1998 

1999 

TOTAL 

27.0 

29.0 

31.0 

34.0 

36.0 

157.0 

21.6 

5.4 

23.2 

5.8 

24.8 

6.2 

21.6 

28.6 

30.6 

33.4 

42.8 

157.0 

27.2 

6.8 

34.0 

36.0 

36.0 

1999 +  5 and  subs,  yrs 

TOTAL 

27.0 

29.0 

31.0 

30 

Fraud prevention measures; Results of  measures taken 

AH contracts, agreements  and legal  undertakings by the Commission  make provision 
for  the possibility  of  spot checks by  the  Commission  and by  the Court of  Auditors. 
Among  other  things,  beneficiaries  of  actions  are  obliged  to  provide  reports  and 
financial  statements which  are analysed with regard to the content and the eligibility 
of  expenditure, in accordance with the aim of  Community  financing. 

9. 

Elements  of  cost-effectiveness  analysis 

9.1. 

Specific  and quantified  objectives; target population 

The aim of the proposal  for the third phase of the programme is to ensure improved 
cohesion  between  the  different  actions  in  the youth  field.  The proposed  approach  is 
not  simply  an addition  to  actions  which  have  until  now  been  dispersed  under other 
Community  programmes  or budget headings,  but  represents  a new  approach  to  the 
programme. 

With this new integrated approach, the Commission wishes on the one hand to ensure 
the greatest possible impact and multiplier effect through the structures, organizations 
and  persons  directly  involved  in  youth  work  and,  at  European  level,  to  widen  the 
scope for learning, experimentation and innovation for an increased number of young 
people, leaders and those responsible  for policy  in this  field. 

Five main actions, each with its own specific objectives, have been developed in order 
to  achieve  these  general  objectives,  while  respecting  the  diversity  of  approach  by 
Member States: 

(1)  Action  A:  Intra-Community  activities  directly  involving young  people 
(2)  Action B:  Youth  leaders 
(3)  Action  C:  Structural  cooperation between  Member  States 
(4)  Action  D:  Exchanges  with non-member  countries 
(5)  Action  E:  Information  for young  people  and youth research. 

Action A; Intra-Community activities  directly  involving  young  people 

In general, the innovatory  approach to the third phase, as proposed in this document, 
should be stressed. In contrast to the first two phases, exchanges are no longer the only 
activity directly involving young people and supported by the programme. They remain 
at die heart of the proposed measures because they  are the ideal  Community  tool  for 
adding value, but they  cannot comprise  a single specific  element,  and must therefore 
form part of the more global  approach to youth policy. 

31 

1-  Specific  objectives 

Transnational  cooperation  with  regard  to  projects  for  exchanges  and 
meetings  outside  the  formal  framework  of  education, training  and  labour 
market  mechanisms  (particularly  for  young  people  who,  under  normal 
circumstances, do not have access to such activities); 

Transnational cooperation on projects with clearly defined themes, organized 
with the  direct  and  active participation  of  groups of  young people  (either 
formal  or informal  groups) and youth organizations; 

Transnational  cooperation  intended  to  promote  intereultural  learning 
(enabling young  people from  different  environments  to meet  and discuss, 
become  acquainted  and  discover  and  accept  their  similarities  and 
differences); 

Reinforcing  the role of young people as active citizens of the Community 
by providing them  with the resources to take an active role in the projects 
in which they take part or which they wish to organize, and encouraging the 
types of expression  which they  understand; 

Meeting  the  needs  and  interests  of  young  people  while  ensuring 
complementarity with other sectors involving them (employment, education 
and training, social policy, health, etc.). 

2.  Target audience 

Young people between  the ages of  15 and 25 resident in a Member  State of the 
European  Community  form  the  target  population  for  the  programme,  with 
particular attention being devoted to those young people disadvantaged as a result 
of  certain  physical  or mental  conditions or  of their  economic, social  or cultural 
situation. 

3-  Budget of Action A 

Over 70% of the proposed credits will need to be allocated to Actions A and 
D, i.e. to those directly  involving young people. 

Assessment  of  the  credits  allocated  to  Action  A must take  account  of  the 
following: 

(a)  The risk of an increase in the number of disadvantaged young people 
over  the  coming  years,  given  the  social  context  which  is  directly 
affecting  them  and,  in  the  light  of  this, the  positive  action  in  their 
favour provided for under the terms of Article 3 of the proposal for a 
Decision (one third of the credits allocated must be used to assist this 
target group), and the possibilities for financing at a level greater than 
the 50% threshold for  exchange activities among this target group. 

32 

(b)  An evaluation  of the first phase of the programme showed that there 
were only 77 multilateral projects during this phase - involving 3 700 
young people - which represents less than  5% of the total number of 
participants  for  the  first  phase,  at  a  cost  to  the  Community  of 
ECU 720 250. The challenge for the third phase, therefore,  following 
the first two phases during which the exchanges were established, lies 
in  significantly  increasing  the  number  of  multilateral  exchange 
activities, bearing  in mind the high  cost of such activities. 

(c)  While keeping the emphasis on exchanges of young people, the third 
phase makes provision for significantly extending the scope of activity, 
fostering  a spirit of initiative and solidarity  among young people and 
thereby  encouraging a greater Community-wide impact among them. 

Activities  hitherto  supported  by  the  Commission  in  this  field  were 
either  purely  experimental  or  for  the  most  part  essentially  local  in 
character. 

The challenge  for  the third  phase lies in  developing  the Community 
dimension  for  these  activities  and  encouraging  transnational  aspects 
which are likely to generate some mobility, not only physical but also 
intellectual, encouraging new forms of communication and partnership 
between  a growing number of young people in Member States. 

Beginning  and  developing  such  a process implies the  availability  of 
substantial financial resources in order to progress beyond its current 
purely  experimental  and specific  character. 

In addition, the challenge to the Community represented by voluntary 
service  activities  and  the  need  to  establish  solid  foundations  in  all 
Member States and at Community  level in order to ensure  significant 
development of activities of this type also require appropriations which 
take  account of  the generally  high  cost of  such  activities  and of the 
fact that voluntary  service for young people is still unknown in some 
Member  States as well  as at Community level. 

Action B: Youth leaders 

While continuing activities undertaken during the first two phases, and extending them 
to include the transnational  activities for young people scheduled for the third phase, 
the  Commission  wishes  to  use  this  new  stage  to  emphasize  new  approaches  with 
regard to language training for leaders, training for leaders working with disadvantaged 
young people and the establishment or consolidation  of networks. 

33 

1.  Specific  objectives 

To  reinforce  and  develop  the  diversification  and  improve  the  quality  of 
exchanges and of  all transnational  activities under Action A. 

To promote  a European  dimension  in  the  training  and  further  training  of 
youth  leaders.  Given  the  significant  diversity  between  Member  States  in 
terms of both the status of leaders and of training, this objective represents 
a significant  added value to Community  action. 

2.  Target public 

Youth  leaders working directly  with young people outside the formal  education 
and vocational  training structure. 

3.  Budget of Action B 

The training of leaders involved with disadvantaged young people, as well as the 
preparatory  linguistic aspect in the more general field of the training of leaders, 
consists of two new activities which will enhance existing activities - to  different 
degrees - leaders in the existing programme's field or in Priority Actions. 

These two types of activity are not only new to the programme, but they will also 
have  to  be  designed  practically  from  scratch,  since there  is  at  present  virtually 
nothing available in these two areas other man on a very small scale. In particular, 
they will require suitable materials, assistance from experts, pilot training projects, 
etc. 

Activities involving leaders undertaken during the first two phases will need to be 
extended  to  cover  all  transnational  activities  for  young  people  set  out  in  the 
programme;  this  will  require  a  new  approach  but  also,  and  particularly,  an 
increased volume of activity in this field. 

Action C: Structural cooperation between Member States 

1.  Specific  objectives 

to  encourage  improved  mutual  knowledge  of  those  structures  in  Member 
States responsible for  or active with young people; 

to encourage cooperation between them; 

to  encourage  the  creation  of  new networks  of  partnerships  between  these 
structures. 

34 

2.  Target public 

Those  in  positions  of  responsibility  in  both  public  and  private  structures 
(governmental  and non-governmental). 

Particular  attention  will  need  to  be  given  to  those  responsible  for  regional  and 
local  structures who have little or no opportunity  for  contacts at European  level 
and for  whom such an action  would definitely  represent an added value. 

3-  Budget of Action C 

It  should  be borne in  mind  that these structures, whether  governmental  or non 
governmental, have very few resources, either financial or human, and mis applies 
particularly  at regional  and local levels. 

Action D: Exchanges with non-member countries 

The exchanges proposed under Action D are Community  exchages with non-member 
countries which  respond principally  to two criteria the one of solidarity  and the one 
of inclusion of two or more Member States and which include explicitely an European 
dimension. 

The youth exchange activities envisaged in the framework  of this action are equivalent 
regarding  their  objectives  and  their  educational  profile  to  the  youth  exchanges 
supported  in the framework  of intra-Community  actions. 

1 •  Specific  objectives 

To  encourage  improved  understanding  of  the  situation  of  young  people 
outside the Community  through  exchange activities, reinforcing  a sense of 
solidarity; 

To  consolidate  preliminary  foundations  for  a  significant  development  of 
exchanges  of  young  people  with  non-member  countries,  in  terms  of 
structures and human resources. 

2.  Target public 

With regard to young people themselves: those aged between  15 and 25 living in 
a  Member  State  of  the  European  Community  and  those  in  the  non-member 
countries involved. 

With  regard  to  measures  concerning  structures  and  human  resources:  youth 
workers  and  those  responsible  for  public  and  private  sector  (governmental  and 
non-governmental)  youth  structures  in  the  Member  States  and  non-member 
countries concerned. 

35 

3.  Budget of Action D 

It is worthwhile pointing out that 70% of the proposed appropriations are allocated 
to Actions A and D in the proposed programme. 

The  evaluation  of  the  appropriations  allocated  to  Action  0  will  have  to  take 
particular  account of the  following: 

The low level of resources available to associate partners in the non-member 
countries concerned; 

The  geographical  scope  of  mis  action  and  the  significant  resulting  costs, 
particularly  with regard to transport; 

The budget for  Action D will  need to be increased  from  1998 onwards in 
order  to  develop  exchanges  initiated  during  the  preliminary  phase,  to 
encourage and prepare for  the establishment of national  coordination  units 
envisaged  by  the  countries  of  Central  and  Eastern  Europe  in  the light  of 
developments initiated during the preliminary phase and in accordance with 
the capacity  of the countries  concerned. 

Action E; Information for young people and youth research 

1.  Specific  objectives 

Information  for young people: 

To develop the capacities of structures established by Member States in the 
process of disseminating  information  aimed at young people; 

To  exploit  existing  information  networks  for  young  people  at  European 
level; 

To create  media networks  for  young  people  aimed  at  and/or  managed  by 
young people; 

To use the media to promote the aims of the programme; 

To network  and exploit relevant  data banks. 

Research into youth  matters 

To analyse and disseminate relevant data from  Member States; 

To promote the exchange of  know-how  between  participating  countries as 
well as between participating countries and the Commission; 

36 

To promote Community  cooperation  in this field. 

2.  Target public 

The information  services of national agencies; 

Information  services and centres for young people; 

Youth  media outlets; 

Experts in research  subjects  in the youth field. 

3.  Budget of Action E 

The  aim  of  this  new  framework  will  be  to  respond  quickly  to  repeated 
requests  for  specific  information  on  youth  issues,  but  also  to  encourage 
improvements in the exchange of information  between the Commission and 
national authorities to create initiatives aimed at those with the potential to 
disseminate  information  to  a wide audience  and to  strengthen  cooperation 
with the Council  of Europe. 

A totally  new  approach  of  this type  will  require, among  other  things, the 
creation of appropriate information  materials and the use or creation of tools 
such as audiovisual  media and data banks. 

Multidisciplinary  cooperation  at  European  level  on  research  into  youth 
matters is a totally  new activity  for  the Community. In this instance, those 
disseminating information  in this field will also have to be targeted, and the 
collection  and  dissemination  of  data  and  the  exchange  of  know-how  and 
information  between  Member  States  and  the  Commission  will  have  to be 
encouraged. 

Accompanying measures 

Under these appropriations, assistance will be granted to the following  activities: 

1.  Measures taken  by  the Commission  in  order  to  accompany  and  support  actions 
laid down in the programme, in particular the provision of expertise and technical 
assistance in administering the programme. 

2.  Assistance in carrying out the structural activités referred to in Article 4(3) of the 

Decision. 

37 

9.2. 

Justification  of the action 

9.2.1  The  Commission  has  noted  with  enthusiasm  the  interest  shown  by  young  people 
themselves with regard to the Community's actions in the youth field, notably  during 
the  first  two  phases  of  the  "Youth  for  Europe"  programme  and  under  the  priority 
actions  in  the  youth  field,  with  requests  submitted  by  young  people  and  their 
organizations far  exceeding  both  the operational  objectives  and the budget  allocated 
to the Commission. 

9.2.2 

In  adopting  the  first  two  phases  of  the  "Youth  for  Europe"  programme  and  the 
Resolution on Priority Actions in the youth field, Member States have also shown their 
interest in supporting such activities, and their intention to promote wider cooperation 
in the youth field at Community level. 

9.2.3  The  European  Parliament,  in  addition  to  its  repeated  support  for  the  "Youth  for 
Europe" programme since its adoption, has shown increasing interest in actions in the 
youth  field  and  has given  a political  sign  in  favour  of  more  coherent,  diverse  and 
greater  action  at  Commission  level  in  the  youth  field  and  has  established  budget 
"Youth  policy"  accordingly,  enabling  the  Commission  to  give 
heading  B3-101 
financial  support  to  a  series  of  measures,  including  those  involving  non-member 
countries. 

9.2.4 

It  is  important  to  stress  that,  in  contrast  to  Community  programmes  in  the field of 
education  and vocational  training, Youth  for  Europe was developed  with  little or no 
existing  structure  for  exchanges  of  young  people  in  a  number  of  Member  States. 
Community  action,  supported  by  the  decentralized  nature  of  the  programme,  has 
allowed  for  the  creation  and  development  of  national  structures  for  exchanges  : 
National  Agencies,  and  also  what  are  often  new  systems  for  many  of  them  -  for 
example systems allowing for  the training of youth leaders. 

9.2.5 

In addition, these national agencies work within a true network built up over the years 
and in close interaction  with the Community.  Community  action has therefore  given 
an  additional  impetus  to  youth  exchange  activities  even  in  those  countries  with  a 
longer tradition  in this field, by creating a Community  dimension. 

9.2.6  This  very  important  added  value  for  Community  action  needs  to  be  not  only 
maintained and reinforced through exchanges, but also extended to other actions in the 
youth field. 

9.2.7  Experience has  also  shown  that  activities  supported  at  Community  level  have  often 
been  an important  incentive for  the development  of initiatives or actions which had 
not previously existed in some Member States. This was the case, for example, in the 
field of voluntary  service activities and for  the training of youth workers. 

As the third phase of the programme is more global and more coherent, the role of the 
Commission  as an instigator  will  be reinforced.  For most Member  States, this phase 
will be new, and there will  inevitably  be effects  on the development of their actions 
for  young people. 

38 

9.2.8  The proposed  approach  for  the  third  phase  is  based  on  the  complementarity  of  the 
Community's role to that of the Member  States, which  will be reflected  in increased 
cooperation  with the relevant national  authorities. 

9.2.9  Community action thus guarantees a real Community dimension to actions undertaken 
from  local  to  national  level,  and  greater  cohesion  both  in  the  distribution  of 
Community  funds  and in the results obtained. 

9.2.10  Finally, individual  Member States' initiatives  could prove often  more expensive and 
less  profitable  for  they  would  need,  in  the  majority  of  cases,  more  investment  in 
research of partners and more expertise, where they could concentrate their efforts on 
a bilateral level. 

Community Action which allows communal effort,  on a multilateral level of  financial 
resources, modes of management, expertise and results, results in the best possible use 
of financial resources. 

Until now, the policy implemented has also had a multiplier effect  with regard to the 
mobilization  of  additional  national  sources  of  finance.  Setting  the  ceiling  for 
Community  joint  financing  at  50%  (with  the  exception  of  certain  projects  for 
disadvantaged  young people) has a dual  effect.  Firstly,  it draws the attention  of the 
authorities at all levels (national, regional and local) to the relevance of funds allocated 
to international  cooperation between young people, and secondly, it contributes to the 
learning process for young people by mobilizing them to find the additional  funds. 

9.2.11  Such  a  policy  therefore  makes  it  possible  to  achieve,  at  limited  cost,  a  significant 
impact over and above the specific objectives, and a multiplier effect  with regard both 
to sources of finance and to the number of  beneficiaries. 

9.2.12  With regard to the structuring of the third phase, the integrated approach proposed in 
this document should facilitate  access for  the young people concerned by presenting 
them  with  a  coherent  initiative,  and  it  also  represents  a  rationalization  of  the  most 
important  factors,  from  the point  of  view of  the pooling  of  transnational  expertise, 
unified  procedures  and  consolidated  assessment  and  monitoring  in  a  partnership 
between  the Commission  and the countries participating in the programme. 

Integrating  exchanges  with  non-member  countries  into  the  "Youth  for  Europe" 
programme  will  enable  youth  organizations  and  groups  in  the  Member  States  to 
broaden their participation to include exchanges with these countries and to strengthen 
existing partnership networks. 

9.2.13  The specific nature and scope of the programme mean that it is aimed at a wider and 
more diversified audience than other Community programmes aimed at young people. 
The integrated approach proposed for the third phase of the programme should enable 
it to reach a very wide audience at all levels of the young population, with particular 
attention to disadvantaged young people. 

39 

9.2.14  The  diversification  of  exchanges  and  transnational  activities  as  well  as  the 
improvement  of  mis  quality  constitute  another  secondary  effect  of  the  proposed 
actions. The integrated  approach proposed by the Commission  for the third phase of 
the programme should primarily make it possible on the one hand to consolidate and 
enhance  existing  achievements  and  on  the  other  hand  to  pursue  and  develop 
innovatory  measures at Community  level. 

In  addition,  the  provisions  laid  down  under  Actions  B, C  and  E  relating  to  youth 
leaders, structures in Member States and information  and research in the youth  field, 
will  contribute  to  the  pursuit  and  development  of  previous  efforts  to  improve  the 
quality of activities directly involving young people. 

9.2.15  Lastly,  young  people  themselves  will  be  the  first  to  spread  the  benefits  of  the 
programme in  so far  as they  will  be  able to give other young people the benefit  of 
their  experience  and  discoveries,  but  also,  quite  simply,  because  their  very 
participation  in  a  Community  programme  will  have  the  effect  of  bringing  the 
Community  into their immediate environment in a more specific  form:  in school, in 
the family,  among friends,  in youth organizations, etc. 

Experience has shown that participation  in an activity  under the "Youth for Europe" 
programme or in the priority actions in the youth field has enabled young participants 
to discover other Community actions and to obtain information on possibilities in other 
relevant sectors, such as education  or vocational  training. 

9.2.16  Where youth  leaders  are concerned,  experience  shows that those who have hitherto 
been  able to benefit  from  a study  visit  or  from  training  at European  level  bring  an 
additional dimension to the activity they organize with young people in the field  and 
also constitute important  resources not only  for  their organization  but  also for  other 
youth groups wishing to participate in a Community  action. 

9.2.17  A "running-in" period  will  be necessary, given  the new approach  initiated  under die 
third  phase  as  proposed  in  this  document  and  the  potential  for  experiment  and 
innovation in the actions planned. This running-in period should enable Member States 
to adapt their structures  and support procedures to transnational youth  activities, but 
also to  place their  cooperation  with  the  Commission  for  the  implementation  of  the 
programme on a systematic  footing. 

This running-in period will inevitably  require an input from the Community, but this 
will taper off as time goes by as shown in table 7.2 (Allocation per element of the cost 
of Action). 

The positive signal and new impetus that the Commission  wants to give in this third 
phase to existing efforts  by the Member States should become apparent in budgetary 
terms. 

40 

9.2.18  Similar  actions  developed  at  Community  level  relate  to  sectoral  policies  for  the 
education and training sectors. They therefore relate to a specific public, namely young 
people  in  vocational  training  and  students  in  higher  education,  and  pursue  specific 
objectives  based on  the requirements of  the sectors concerned  (curricula,  the labour 
market, economic competitiveness). 

Measures planned under the present proposal are not, strictly speaking, part of sectoral 
policies  but of  what  might  be termed  a  "youth  policy"  based  on young  people  as a 
social  group.  Their  target  public  is therefore  much  wider  and  more  diversified,  and 
both the aims and the methods used differ  from  those which apply to measures in the 
fields of education  and training. 

9.2.19  With regard to exchanges with non-member countries, and in particular to the TACIS, 
Phare and MEDURBS programmes and cooperation with the countries of Central and 
Latin  America,  the  present  cooperation  with  DG I  makes  it  possible  to  develop 
complementarity and synergies. Any assessment of experience acquired in the field of 
exchanges with non-member  countries could also be used to  develop  synergies with 
actions planned under Lomé IV. 

9.2.20  The experimental  dimension of the actions proposed for young people under the third 
phase of the programme takes on particular significance  in the current social context, 
directly targeting young people, with a view to developing synergy with the European 
Social Fund. 

9.2.21  Finally,  with  regard  to  information  for  young  people,  the  Commission's  new 
information  and  communication  policy,  which  defines  the  role  of  departments  in 
providing  information  on their  activities,  in  relation  to the general  information  role 
fulfilled  by DG X, will  also enable the development  of  complementarity. 

9.3.  Monitoring and evaluation of the operation 

9.3.1  Guide to selected  Performances. 

In terms of qualitative  factors. 

-  Success rate of tri-and multi-lateral  projects. 

-  The result of National  agencies and structures and consequently  the degree of the 
programmes'  penetration  in  Member  States,  particularly  the  participation  of 
disadvantaged young people, who are a priority  target of the programme. 

The equal flow of exchanges, especially  following  the integration of EFTA/EEA 
countries as well as by the two big axes of activity with the non-member countries 
(Central  and Eastern  Europe and Latin  America.) 

The capacity of young people to finance part of their project (disadvantaged young 
people not included). 

41 

Development  of  a  better  mix  of  skills  from  the  training  of  leaders  based  on  the 
concept  of  intercultural  learning. 

Development  of  the  capacity  of  passing-on  information  at  local  level. 

Mobilizsation  of  youth  organizations  capacities. 

A base  for  evaluation  can  be  formed  from  the  quantitative  factors. 

Level  of  disadvantaged  youth  participation 

cost  of  participant 

total  number  of  participants 

However,  awareness  of  these  quantitative  factors  does  nott  always  allow  for  an 
appropriate  apprecation  of  the  work  put  into  the  programme. 

To do this, a periodical evaluation  must take place  covering the opinions and  enquiries 
of  the  participants. 

9,3.2 

In  accordance  with  Article  10  of  the  proposal  for  a  Decision  concerning  the  third 
phase  of  the  programme: 

During  the  third  year  of  the  programme  the  Commission  shall  present  an 
evaluation  report  covering  the  first  two  years  of  programme  implementation.  On 
the basis of this report, the  Commission  may  submit proposals to the Council  and 
the  Parliament  concerning  readjustment  and  subsequent  development. 

External  evaluation  of  the  "Youth  for  Europe"  programme  and  the  various  activity 
reports on  both  the programme  and the priority  actions  are enclosed  with  the  present 
document. 

9 4 

Coherence with financial  programming 

Is the  operation  incorporated  in  the  DG's financial  programming  for  the  relevant 
years? 

Yes 

To  which  broader  objective  defined  in the  DG's  financial  programming  does  the 
objective  of  the  proposed  operation  correspond? 

"Education,  Training,  Youth" 

42 

10. 

Administrative  expenditure  (Part A  of  the  budget) 

This  section  of  the financial  statement  must be  sent to  DGs IX  and  XIX;  DG  IX  will 
then  forward  it  to DG  XIX  with  its  opinion. 

10.1  Will  the proposed  operation  involve  an  increase  in  the number  of  Commission  staff? 

If  so, how  many? 

2A,  IB,  2C 

10.2 

Indicate  the amount  of  staff  and  administrative  expenditure  involved  in the  proposed 
operation. 

The  increase  in  staff  shown  above  is  necessary. 

Explain  the  method  of  calculation. 

A.  The  increase  in  staff  is necessary  due to: 

The  increase  in  the  total  amounts  to  be  administered  and  the  resulting 
administrative  implications  (IB,  1C). 

Developments  in  the  design  and  organization  of  the  external  aspect  of  the 
programme,  particularly  actions  in  the  countries  of  Central  and  Eastern 
Europe  (1A). 
The extension  of the information/training  tasks linked to the development  of 
the  programme  (1/2A). 

Coordination  and  administration  of  an  increased  number  of  national 
coordination  units, increasing from  the current level of  15 to 20 (1/2A,  1C). 

Calculation of approximate amounts for one year (1993 prices) to be kept constant 
in  real  terms  over  the  period: 

2  A5  officials  (salary  + infrastructure) 
1  B3  official  (salary  +  infrastructure) 
2  C3  officials  (salary  + infrastructure) 

TOTAL 

ECU  242  000 
ECU  80  000 
ECU  126  000 

ECU  448  000 

B.  To this amount should be added personnel  and operating costs directly  linked to the 
administration  of  the  programme.  Its  level  will  be  fixed  according  to  general 
orientations  laid down  by the Commission  regarding technical  assistance and on the 
basis  of  experience  acquired  in  the  subject. 

43 

ISSN 0254-1475 

COM(93) 523 final 

DOCUMENTS 

EN 

16 

Catalogue number : CB-CO-93-567-EN-C 

ISBN 92-77-60233-3 

Office for Official Publications of the European Communities 
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