Opinion of the Economic and Social Committee on: - the 'Proposal for a European Parliament and Council Decision on a series of guidelines, including the identification of projects of common interest, for trans-European networks for the electronic Interchange of Data between Administrations (IDA)', and - the 'Proposal for a Council Decision adopting a series of actions and measures in order to ensure interoperability of and access to trans-European networks for the electronic Interchange of Data between Administrations (IDA)'
Date: 1998-04-29
Institutions: European Economic and Social Committee
Subjects: EU programme, exchange of information, public administration, telematics, trans-European network

10.7.98

EN

Official Journal of the European Communities

C 214/33

Opinion of the Economic and Social Committee on:

— the ‘Proposal for a European Parliament and Council Decision on a series of guidelines,
including the identification of projects of common interest, for trans-European networks
for the electronic Interchange of Data between Administrations (IDA)’, and

— the ‘Proposal for a Council Decision adopting a series of actions and measures in order to
ensure interoperability of and access to trans-European networks for the electronic
Interchange of Data between Administrations (IDA)’ (1)

(98/C 214/09)

On 30 January 1998 the Council decided to consult the Economic and Social Committee,
under Article 129d of the Treaty establishing the European Community, on the above-mentioned
proposals.

The Section for Industry, Commerce, Crafts and Services, which was responsible for preparing
the Committee’s work on the subject, adopted its opinion on 1 April 1998. The rapporteur
was Mr J. Bento Gonçalves.

At its 354th plenary session (meeting of 29 April 1998), the Economic and Social Committee
adopted the following opinion by 119 votes to one with two abstentions.

1. General comments

1.2. Telematics applications to date

1.1. Evaluation of IDA

1.1.1.
Prefacing the European Parliament and Council
proposals under analysis, the Commission has presented
a Communication on the evaluation of IDA I, referring
to the difficulties the programme had to cope with
during its period of application as a consequence of the
rapid development of information technologies and
instruments, triggered by the brisk pace of technological
progress. The appearance of the Internet has speeded
up the process even further, requiring strategies to be
rethought, as demonstrated by the astronomical growth
in use of this new means of data communication which
has brought onto the market a wealth of new products
and services; this has required a re-orientation of
strategy, which IDA II will be examining.

1.1.2.
The mid-term evaluation of the current IDA
programme, which was required by Article 6 of the
Council decision, was carried out by the Commission,
assisted by independent evaluators;
it has provided
useful observations on the objectives, strategy and
management of the programmes.

1.1.3.
The evaluation concluded that the first phase
of IDA has been a valuable programme which has
launched and stimulated the development of trans-
European telematics systems and fostered administrative
cooperation among Member State administrations and
EU institutions; it has also helped make administrations
aware of the importance of, and need for, these networks
and programmes and their interoperability.

(1) OJ C 54, 21.2.1998, pp. 3-12.

1.2.1.
Telematics applications have been drawn up
for specific sectors: customs and taxation, fisheries,
agriculture, social security, public procurement, health,
statistics, commercial policy, competition policy and
culture.

2. General comments on IDA II

The environment and developments surrounding
2.1.
IDA I have undergone constant change and this, together
with the overriding need for European administrations
to take advantage of new technological opportunities
for speeding up completion of
the single market,
determines this new phase of the project (IDA II),
allowing use of associated Internet technologies and
facilitating to a considerable extent the creation of
telematics networks which allow global connectivity.

2.2.
The Commission proposals for a second phase
in the IDA programme aim to provide technological
support needed to a) secure a more flexible Community
decision-making process and b) ensure Community
policies and actions are more effective and beneficial for
the general public and industry.

To this end, national and Community adminis-
2.3.
trations will collaborate to establish telematics networks
ensuring the highest level of interoperability between
systems, not only within each administrative sector but
also between different sectors and with the private
sector. These actions will be based on a market-
orientated strategy of providing service to users, aimed

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at ensuring greater cost-effectiveness, simplifying net-
work construction and improving their capacity to adapt
to technological progress.

2.6.5.
This approach thus aims to encourage invest-
ment by industry and promote partnerships between the
public and private sectors.

2.4.
This, will ensure that full use is made of IDA
networks by those responsible for the Community
policies and activities benefiting from the networks.
Indeed, the networks will simplify their task a great
deal, allowing them to improve on efficiency and service
capacity.

2.6.6.
It is necessary to specify more clearly the
criteria applied to projects which may apply for funding
and the limits on the duration of this funding.

2.6.7.
Future proposals for new developments must
therefore always be accompanied by statements of how
their operational costs will be met.

2.5.
These technological advances, while facilitating
the establishment of telematics networks, nevertheless
entail other problems such as security, legal obstacles
and the need for interoperable solutions which satisfy
multilingual and multicultural requirements; this in turn
necessitates global coordination and dialogue between
both Member State and Community administrations.

In general, the guidelines for IDA I will be
2.6.
maintained; the ESC has already expressed its views on
these in its Opinion 709/93 (1).

2.7. The Internet and its regulation

2.7.1.
The growth and globalization of the Internet
have transformed the global communications landscape.
The Internet is designed in such a way as to provide a
simple method of communication between a vast number
of people which is dynamic, flexible and open to all.
This is where its strength lies and also its weakness. The
Internet was not devised to protect sensitive information
or to guarantee high standards of service. There are no
rules to regulate service users or suppliers.

2.6.1.

This new phase (IDA II) will focus on:

2.7.2. P r i v a t e ‘ I n t r a n e t s ’

— the development of network infrastructures, includ-
ing the definition and implementation of generic
services, giving priority to those products and services
available on the market, to coordinate and support
the various sectoral administrations;

— simplification in the creation of IDA networks so
that they are less costly and cumbersome, and more
interoperable;

— the developmental capacity of the IDA network
should take into account any adjustments to the
requirements of administrations which might prove
necessary to harmonize information content and the
management of interoperational systems.

To achieve the above objective,

it will be
2.6.2.
necessary to standardize the compilation of data, giving
priority to standardization within each sector, so as to
facilitate analysis and comparison of results.

As regards programme management, on the
2.6.3.
basis of experience to date, IDA II will move towards
concentrating managerial activities in a single manage-
ment committee, the tasks of which should be more
clearly set out in the proposed decision.

2.6.4.
IDA II will have a duration of five years. A list
will have to be drawn up of projects supported by the
programme on a more regular basis, so that priorities
can be established; from this can be distilled a list of
projects of common interest, which will be reviewed
every three years.

The facts mentioned above militate against use of the
Internet in environments where there is a strong need
for reliability, service quality and security. However,
the technologies on which the Internet is based can be
used effectively in private networks to set up what is
commonly known as an ‘Intranet’. If they are managed
in a coordinated fashion with everyone involved taking
a responsible attitude, Intranets are capable of sur-
mounting the above-mentioned obstacles, offering a
viable option in cost-benefit terms for the implemen-
tation of IDA networks.

2.7.3. T h e p r o v i s i o n o f

i n f o r m a t i o n t o
t h e g e n e r a l p u b l i c a n d t o b u s i -
n e s s e s

With the advent of the information society, adminis-
trations, in their capacity as protagonists in this revol-
ution, must encourage and facilitate the flow of infor-
mation to and from the general public and the business
sector. Sectoral networks must set up broader communi-
cation models as soon as possible making use of global
technologies such as the Internet while bearing in mind
security requirements.

3. Political, strategic and legal context

The action plan for the single market devised by
3.1.
the Amsterdam
the Commission and presented at
European Council (2) discusses four strategic objectives:

Objective 1 — making the rules more effective;

(1) OJ C 249, 13.9.1993.

(2) COM(97) 184 final.

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Objective 2 — eliminating the main market distortions;

Objective 3 — abolishing sectoral obstacles to market
integration;

Objective 4 — placing the single market at the service
of the general public.

3.2.
There are a variety of actions designed to give
substance to the four freedoms of movement in the
European Union:

— freedom of movement and establishment of persons;

confidentiality and authentication of messages, as well
as their non-repudiation, are particularly delicate where
public administrations are concerned. Consequently,
generic services used for the whole IDA network will
have to guarantee suitable levels of security, satisfying
both interoperability and efficiency requirements. More-
over, specific horizontal actions will be undertaken to
define a legal and security framework model for the
trans-European exchange of data between adminis-
trations, to encourage adoption of this by Member
States and to secure its application in the administration
of the Community itself.

— freedom of movement of products;

— freedom of movement of services;

— freedom of movement of capital.

3.3.
These rights, which have been bestowed upon
Europe’s citizens and economic and social operators,
require the Community institutions and the Member
States — through their administrations — to create the
technical and legal conditions for us to be able to benefit
freely and safely from the advantages of the Community
area, with rights and duties standardized as far as
possible, regardless of nationality.

3.4. Over and above the achievement of the single
market objectives, there are a number of issues which
add to the challenges facing us in which the contribution
and success of the IDA will be of significance: these
include the practical achievement of European monetary
union, support for enlargement of the Union and reform
of the European institutions.

3.5.
The IDA programme as a whole constitutes a key
instrument for realizing these rights and all concerned
should view the programme as being something which
must not fail.

3.6. Combating fraud

Telematics networks are key instruments for
3.6.1.
combating fraud. For this, more effective communi-
cation is required between national and community
administrations at a level which would be impossible to
secure without the capacity of telematics for data
exchange. Fighting fraud is therefore one of the priorities
of the IDA II programme, as defined in the proposed
decision on guidelines. Moreover, the financial interests
of the Community in implementing the programme will
be safeguarded by appropriate measures (described in
the financial statement accompanying the Commission
proposals).

3.7.

IDA II and security (1)

3.7.1.
Another major concern of IDA II is security.
Indeed, problems relating inter alia to the integrity,

(1) See Opinion CES 443/98.

3.8. Budget

Analysis of the financial statement appended to IDA II
shows operational costs of ECU 71,6 million (for the
1998-2000 period) which, in view of the objectives and
tasks involved, does not appear to be excessive.

It should be borne in mind that this total does not
include Member States’ financial participation.

4. Specific comments

4.1. Proposal for trans-European networks for the
electronic interchange of data between adminis-
trations (IDA) 97/0340 (COD)

4.1.1. A r t i c l e 8 ( 1 ) ( T A C )

Add the following sentence:

‘The Committee shall also have the task of approving
the annual work programme and the implementation
programmes for each of the IDA programmes.’

4.1.2. A r t i c l e 1 1 ( 5 )

The following wording is proposed for this paragraph:

‘A post-implementation review of each of the other
sectoral networks shall be carried out within one
year of their conclusion. The results of each review
will be sent to the Member States.’

4.2. Proposal on actions and measures to ensure inter-

operability [97/0341 (SYN)]

4.2.1.
sets out the following:

Article 3 should contain a point which clearly

‘Implementation of
these horizontal actions and
measures will be market-oriented, giving preference to
the acquisition of services on the market, particularly

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specialized SME services, and avoiding investment in
infrastructure, specific technologies and in the develop-
ment of proprietary solutions.’

4.2.2.

Add the following to Article 4(2b):

‘... imposed by a multi-vendor environment, taking
account of the services needed for implementation,
operational maintenance and support for users in
sectoral networks.’

4.3. Article 12(1) (TAC)

4.3.1.

Add the following sentence:

‘The Committee shall also have the task of approving
the annual work programme and the implementation
programmes for each of the IDA programmes.’

5. Conclusions

5.1. Dialogue: an essential prerequisite

5.1.1.
Cooperation between all protagonists by means
of frank and constructive dialogue is an essential
prerequisite.

5.2. Coordination

5.2.1.
Community-level coordination and cooper-
ation, and links between this and the relevant sectoral
units in each administration, as well as links with
operators of service-providing networks and firms, will

Brussels, 29 April 1998.

have to be effective, considering the importance of the
project for the future of the European Union.

5.3. Confidentiality and protection of personal infor-

mation

5.3.1.
Information, security and compliance with
legal aspects as regards the guarantee of confidentiality
and protection of personal information constitute anoth-
er set of prerequisites which must be fully guaranteed.

5.4.
IDA II will have to boost the development of
European SMEs, both in the hi-tech and service sectors.

5.5. Training and employment opportunities for young

people

5.5.1.
A key task for the programme will be the
training of staff to operate the various aspects of the
network, including the vocational retraining of current
staff and the training of young people (1), and involving
educational establishments at all levels in all Member
States. Young people who are well prepared for this
area will represent considerable value added for the
future of the objectives targeted by the IDA; the
programme will provide a new area of job creation.

5.6.
The ESC backs the proposals set out for IDA II
in COM(97) 661 final, as complemented by the ideas
and proposals contained in this opinion, especially those
summarized in the conclusions.

(1) OJ C 129, 27.4.1998.

The President

of the Economic and Social Committee

Tom JENKINS