Odysseus Programme: 1999
Date: 1999-01-22
Institutions: European Commission
Subjects: EU programme, European official, administrative cooperation, in-service training, migration, political asylum

C  17/16

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22.1.1999

III

(Notices)

COMMISSION

ODYSSEUS  PROGRAMME:  1999

(1999/C  17/07)

1.  Broad  outline  of  the  programme

the  Odysseus  programme  of
The  Council  adopted 
in  the  fields  of
training,  exchanges  and  cooperation 
asylum,  immigration  and  crossing  of  external  borders  on
19  March  1998  (OJ  L  99,  31.3.1998).  The  programme
applies  to  the  15  Member  States  of  the  European  Union;
the 
non(cid:220)member
countries,  may  also  be  associated  provided  this  would  be
in  accordance  with  the  programme’s  objectives.

and  other 

countries, 

applicant 

The  financial  reference  amount  for  the  implementation
of  the  programme  for  the  period  1998  to  2002  is  EUR
12  million.

The  programme  has  three  main  objectives:

responsible 

implementing 

1.(cid:217)First,  to  secure  the  long  term  practical  cooperation  of
the  authorities 
the
for 
immigration  and  external  border  control
asylum, 
policies.  The  long(cid:220)term  approach  is  a  prerequisite  for
the  programme’s  effectiveness,  given  that  any  changes
to  new  legislation,  procedures  and  techniques  will
than  an  annual
generally 
programme  allows.

require  more 

time 

2.(cid:217)Second,  to  design  a  programme  incorporating  the
various  elements  of  a  wide(cid:220)ranging  cooperation  policy
by  means  of  training  and  exchange  projects  for
officials.  To  be  fully  effective  they  must  meet  three
conditions:

-(cid:217)the  various  levels  of  competence  must  be  defined:
this  means  making  sure  the  measures  implemented
under  the  Odysseus  programme  at  Union  level
in  particular  basic
complement  other  measures, 
training  for  officials,  which  mainly  come  within
the  competence  of  the  Member  States,

-(cid:217)cooperation  must  be  accompanied  by  the  devel(cid:220)
opment  of  tools  based  on  studies  and  research  and
the  dissemination  of  information  which  increases
effectiveness,

-(cid:217)assessment  must  be  incorporated,  i.e.  each  measure
must 
the
include  a  complete  definition  of 
objectives  and  the  means  to  achieve  them.  The
objectives  must  be  consistent  with 
the  needs
expressed  and  the  content  of  the  programme.  In
other  words,  new  measures  can  be  launched  only
if  they  fully  incorporate  the  assessment  of  previous
similar  measures.

3.(cid:217)Third,  to  take  steps  to  open  the  programme  up  to
non(cid:220)member  countries  in  general  and  the  applicant
countries  in  particular,  priority  being  given  to  co(cid:220)
operation  projects  to  familiarise  the  latter  with  the
accumulated  body  of  Union  law  relating  to  asylum,
immigration  and  the  crossing  of  external  borders.

The  programme  sets  out  to  meet  these  objectives  by
supporting  measures  initiated  by  public  institutions  or
private  bodies  aimed  at  developing  cooperation  in  the
fields  of  asylum, 
the  crossing  of
immigration  and 
external  borders.  This  is  why  the  structure  is  based  on  an
annual  programme  adopted  by 
the  Management
Committee,  which  seeks  to  ensure  that  the  selection
process  is  as  open  as  possible  and  that  the  projects
selected  meet  the  strictest  criteria  through  the  partici(cid:220)
pation  of  experts  who  will  assist  the  Commission  in
formulating  proposals  for  consistent  programmes.

The  Commission  will  make  sure  the  programme 
is
consistent  with  existing  programmes  under  Title  VI  of
the  Treaty  on  European  Union  and 
the  PHARE
programme,  in  particular  the  aspects  dealing  specifically
with  Justice  and  Home  Affairs.

To  achieve  this  objective,  the  Odysseus  programme  will
consist  of  operations  in  the  following  areas:

subject 

training  will 

studied,  basic 

-(cid:217)training  for  civil  servants,  either  for  instructors  or
advanced  courses  for  specialists,  since,  depending  on
remain
the 
primarily  within  the  competence  of  the  Member
States.  As  this  is  the  second  year  of  the  programme’s
implementation,  it  would  not  appear  necessary  to
specify  the  type  of  training  by  giving  priority  to
instructors  or  to  specialists.  The  areas  are  sufficiently
broad  and  distinct  for  it  to  be  feasible  to  define  the
most  appropriate  type  of  training  case  by  case.  With
regard  to  forget  identity  documents,  training  will

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interest, 

have  to  take  account  of  the  lessons  learned  from  the
Sherlock  programme.  In  other  areas,  training  could
be  more  usefully  focused  on  basic  concepts.  In  this
context  the  Commission  intends  to  give  priority  to
information.  With  regard  to
the  dissemination  of 
questions  of  common 
involve
processing  the  information  obtained  in  the  Member
States  and  disseminating  it  as  widely  as  possible  to
the  personnel  concerned;  it  will  also  involve  further
training  and  specialisation  for  experienced  officials  in
order  to  study 
in  greater  depth  specific  aspects
identified  as  requiring  special  effort.  Regular  training
courses  will  have  to  be  held  so  that  they  will  have  a
knock(cid:220)on  effect  and  become  a  source  of  reference
information  by  the  end  of  the  period,

this  will 

familiarisation 

on(cid:220)the(cid:220)spot  with 

-(cid:217)exchanges  of  officials  between  Member  States,  a
complementary  dimension  of  training.  The  periods  of
exchanges  can  be  sufficiently  extended  to  allow  for
practical 
the
methods,  procedures  and  techniques  used.  This  could
take  the  form  of  unilateral  or  reciprocal  visits  to  the
national  authorities  responsible  for  asylum, 
immi(cid:220)
gration  and  external  frontier  control,  to  gain  an
on(cid:220)the(cid:220)spot  insight  into  the  problems  encountered  in
other  Member  States.  With  the  agreement  of  the
respective  national  authorities,  long(cid:220)term  visits  will
make 
it  possible  for  officials  to  participate  more
actively  in  operations.  Similarly,  there  will  be  more
opportunities  for  officials  of  several  Member  States
to  visit  another  Member  State,

-(cid:217)studies  and  research,  the  third  component  of  the
annual  programme,  aims  in  particular  at  the  design
and  dissemination  of  teaching  materials  (educational
tools,  software,  etc.).  Research  could  be  more  closely
focused  on  the  development  of  tools  and  the  prep(cid:220)
aration  of  actual  cases.  In  this  context,  consideration
could  be  given  to  projects  which  aim  at  document
dissemination  or  access  (via  databases),  making  it
improve  cooperation  between  national
possible  to 
authorities.  Existing 
legislative  and
regulatory  fields,  or  those  coming  into  being,  could
be  the  central  topic  of  research,  in  particular  in  prep(cid:220)
aration  for  the  entry  into  force  of  the  Treaty  of
Amsterdam.

institutional, 

Projects  are  selected  by  a  Management  Committee
consisting  of  a  representative  of  each  Member  State  and
chaired  by  a  representative  of  the  Commission.  To  be
considered,  projects  must  be  of  interest  to  the  Union  and
least  two  Member  States.  The  applicant
involve  at 
countries  can  be  associated  with  such  projects, 
in
accordance  with  Article  10  of  the  Joint  Action,  if  this  is
in  line  with  the  objectives  of  the  programme.  In  addition,
the  programme  does  not  exclude  the  participation  of
other  non(cid:220)member  countries,  provided  their  presence  is
in  the  interests  of  the  Union.

2. Structure  of  the  annual  programme,  fields  of  action

for  1999  and  total  appropriation

has 

programme 

broad  objectives
The  Odysseus 
concerning  asylum, 
immigration  and  the  crossing  of
external  borders.  These  are  specific  fields  and  call  for
different  types  of  partnership.  Certain  sectors,  such  as
combating  forged  documents,  require  strict  confiden(cid:220)
tiality,  while  others  are  open  to  universities  and  the
academic  world,  to  non(cid:220)governmental  organisations,  or
even  to  companies  from  the  business  world.  This  is  why
the  Odysseus  programme  is  addressed  to  a  broad  public,
ranging  from  the  authorities  responsible  for  the  above
fields  to  bodies,  associations  or  companies  which  operate
in  relation  to  them.

The  structure  of  the  Odysseus  programme  reflects  this
diversity,  by  assigning  priority  to  the  three  main  areas
(asylum,  immigration,  external  borders),  where  the  tradi(cid:220)
tional  forms  of  cooperation,  training,  exchanges  and
studies,  will  apply,  but  with  preference  also  being  given
to  the  problems  facing  Member  States  in  these  fields.
Priority  will  accordingly  be  given  to  areas  connected
with  the  action  plan  for  an  area  of  freedom,  security  and
justice  and  with  the  entry  into  force  of  the  Amsterdam
Treaty,  and  pressing  issues.  This  prioritising  in  no  way
alters  the  traditional  structure  of  the  programme,  which
is  based  on  training,  exchanges  and  studies  and  research.

The  annual  programme  will  be  implemented  in  successive
stages,  and  priority  will  be  given  to  areas  of  common
interest  to  the  Union  and  the  Member  States  and
particularly  to  topical  subjects,  especially  those  currently
being  discussed  in  the  Council,  while  other  more  specific
aspects  can  be  dealt  with  later.

In  all  the  programmes  managed  by  the  Commission,
increasing  emphasis  must  be  placed  on  the  assessment  of
the  programme.  The
operations  carried  out  under 
Commission 
approach,
grouping  together  all  the  programmes  covered  by  Title
VI  of  the  Treaty  on  European  Union.

to  generalise 

intends 

this 

- Asylum

-(cid:217)The  entry  into  force  of  the  Dublin  Convention  is
a  top  priority,  for  its  implementation  and  the
conditions  of  its  application  require  the  Member
States  to  provide  training,

-(cid:217)the  annual  programme  seeks  to  place  an  emphasis
on  best  practices  as  regards  procedures 
for
examining  asylum  applications,

beyond  that,  increased  cooperation  in  other  areas
of  asylum  would  be  beneficial.  On(cid:220)the(cid:220)spot

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exchanges  will 

comparisons  during 
enable
officials  to  become  more  familiar  with  systems
other  than  those  they  themselves  employ,  and  on
some  occasions 
transpose
solutions  to  their  own  administration,

enable 

them 

to 

-(cid:217)such  cooperation 

is  particularly  useful 

in  the
applicant  countries,  as  a  number  of  them  have
only  recent  experience  in  this  field.  It  enables
them  to  acquire  the  basics  of  the  process  of
managing  asylum  applications,

-(cid:217)priority  will  be  given  to  matters  connected  with
work  in  progress  on  temporary  protection  and
financial  solidarity,  and  on  alternative  protection,

-(cid:217)since  in  another  context  the  Commission  manages
the  budget  headings  relating  to  the  financing  of
specific  projects  for  displaced  persons,  asylum
seekers  and  refugees  (Joint  Actions  98/304/JHA
and  98/305/JHA,  OJ  L  138,  9.5.1998),  comple(cid:220)
mentarity  with  measures  in  this  context  will  be
encouraged.

- Immigration

two  complementary  aspects  of 

the  policy
The 
outlined  in  the  Commission  memorandum  (February
1994)  concerning  immigration  and  asylum  must  be
taken  into  account.

third(cid:220)country  nationals  and 

-(cid:217)this  is  why  operations  must  concern  both  the
admission  of 
the
prevention  of  illegal  immigration.  On  the  first
point  the  programme  seeks  to  stress  the  subjects
closely  related  to  the  draft  convention  concerning
the  admission  of 
to
Member  States  of  the  European  Union,

third(cid:220)country  nationals 

-(cid:217)with  regard  to  the  second  point,  projects  could
concern  the  practical  methods  of  readmitting
illegal  third(cid:220)country  nationals.  Projects  submitted
within  this  framework  should  relate  by  way  of
priority  to  the  work 
in  progress  within  the
European  Union,  or  should  come  within  the
framework  of  the  accession  partnership  with  the
applicant  countries,

-(cid:217)the  programme  also  seeks  to  emphasise  best

practices  as  regards  immigration  control,

-(cid:217)other  general  priorities  of  the  programme  are
matters  relating  to  the  prevention  of  illegal  immi(cid:220)

gration,  illegal  residence  in  the  Member  States
and  the  prevention  of  trafficking  in  persons.

The  Commission  and  the  Management  Committee
will  take  steps  to  avoid  overlapping  with  other
Community  programmes  involving  similar  operations.

- Crossing  external  borders

-(cid:217)an  essential  part  of  the  "external  borders’  aspect
will  be  the  campaign  against  the  use  of  forged
documents,  in  connection  with  the  results  of  the
Sherlock  programme,  using  in  particular  the  most
recent  forms  of  cooperation  and  training  such  as
technical  consultancy  on  forged  documents  and
liaison  officers,

-(cid:217)problems  relating  to  different  types  of  borders
(sea,  land  and  air)  will  be  taken  into  account
using  an  approach  targeting  each  category,

-(cid:217)projects  could  highlight  special  border  control
issues  in  conjunction  with  a  precise  geographical
approach,  targeting  frontier  regions  with  special
features  (Baltic  States,  Balkans,  European  Medi(cid:220)
terranean  countries).

In  the  light  of  these  considerations  and  observations  of
the  situation  in  the  various  related  areas  and  the  work  of
specialised  groups,  the  following  fields  of  action  are
proposed  for  the  1999  programme,  within  the  framework
of  an  overall  estimated  budget  of  EUR  3  million.  Tradi(cid:220)
tional  methods  of  cooperation  will  be  comibined  with  the
more  specific  objectives,  not  forgetting  the  share  set
aside  for  assessment.

Field  of  action  (a)

- Training  remains  at  the  very  heart  of  the  priorities  of

the  Joint  Action.

-(cid:217)first,  the  Commission  would  emphasise  that  it
training  projects
the

to  give  priority 

into  force  of 

the  entry 

intends 
connected  with 
Amsterdam  Treaty,

to 

national 

-(cid:217)next,  the  annual  programme  seeks  to  stress  the
considerations  relating  to  the  measures 
imple(cid:220)
mented  at  Union  level.  Thus,  projects  will  tend  to
improve 
of
Community 
instruments,  procedures,  methods
and  techniques.  In  this  connection,  preference
will  be  given  to  actual  training  projects,  both
initial  and 
instructors,
specialists  or  operatives.  Conferences  on  topics

continuous, 

knowledge 

targeting 

officials’ 

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which  are  general  or  too  far  removed  from
practical  training  objectives,  while  they  may  be  of
interest 
policy
considerations,  are  not  priorities  of  the  annual
programme,

terms  of  disseminating 

in 

Given  work  in  progress  and  the  interest  generated  by
this  subject,  information  campaigns  on  the  prevention
of  illegal  immigration  and  on  possibilities  for  legal
immigration  could  usefully  be  the  subject  of  study
and  research.

-(cid:217)finally,  projects  will  have 

to  concentrate  on
matters  which  could  be  the  subject  of  closer
cooperation,  both  between  the  Member  States
and  with  the  applicant  countries.

Field  of  action  (d)

- Cooperation  with  non(cid:220)member  countries

Field  of  action  (b)

- Topical  subjects:  This  involves  responding  to  specific
needs  and  problems  facing  the  Member  States  (new
regulations,  new  practices,  new  technologies,  etc.).
The  annual  programme  seeks  to  place  at  the  disposal
of  Member  States  an  instrument  facilitating  a  prompt
response  to  matters  of 
immediate  concern.  This
chapter  could  primarily  cover  measures  connected
with  the  action  plan  for  an  area  of  freedom,  security
and 
justice.  It  will  also  give  priority  to  projects
directly  linked  to  legal  changes  arising  from  the  entry
into  force  of  the  Amsterdam  Treaty.  Finally,  it  is
intended  to  gear  initiatives  which  might  be  taken  in
one  of  the  three  areas  (asylum,  immigration,  external
borders)  to  topical  issues  and  events.

Field  of  action  (c)

- Studies  and  research

The  annual  programme  aims 
to  concentrate  on
priority  issues  in  the  field  of  justice  and  home  affairs.
Particular  emphasis  will  be  placed  on  the  subjects
referred  to  in  the  action  plan  for  an  area  of  freedom,
security  and  justice.  Priority  will  also  be  given  to
projects  which  could  have  practical  implications  for
future  legislative  instruments,  in  particular  the  issues
the
in 
which  are 
Commission’s 
legislative  priorities.  For  example,
topics  relating  to  temporary  protection  and  solidarity,
implementation  of  the  Dublin  Convention  or  the
admission  of  third  country  nationals  to  the  European
Union  could  usefully  be  the  subject  of  study  and
research  in  1999.  The  programme  aims  to  encourage
a  forward(cid:220)looking  and  dynamic  approach  rather  than
one  which  is  statistical,  descriptive  or  historical.

context  of 

important 

the 

-(cid:217)In 

outlined 

integrate 

the  context  of 

the  accession  partnership,
the
applicant  States  must  gradually 
Union’s  acquis,  in  the  broadest  sense,  into  the
programme.  This
areas 
requirement 
legal
instruments,  procedures,  methods  and  techniques.
Implementation  of  the  programme  during  this
period  will  focus  on  the  acquisition  of  basic
knowledge.

the 
a  knowledge  of 

in 
entails 

This  is  a  horizontal  objective  which  will  be  imple(cid:220)
mented  through  various  types  of  action  (mainly
training  and  exchanges  of  officials,  studies  and
research).  There  will  be  no 
financial
programme  for  this  field  of  action.  Steps  will  be
taken 
complement  other
programmes  under  Title  VI,  as  well  as  the  other
Community  aid  programmes,  in  particular  the  hori(cid:220)
zontal  PHARE  programme,  one  aspect  of  which
in
justice  and  home  affairs 
specifically  concerns 
general  and  external  border  controls  in  particular.

to  make 

special 

they 

sure 

For 

The  lion’s  share  allocated  to  the  applicant  countries
by  no  means  excludes  the  association  of  other  third
countries. 
of
non(cid:220)member  countries  which  are  not  apllicants  could
be  considered  provided 
the
interests  of  the  Union.  For  example,  association
could  be  based  on  a  geographical  approach.

the  projects  are 

association 

example, 

the 

in 

At  this  stage  of 
implementation  of  the  Odysseus
programme,  priority  must  be  given  to  the  conditions
for  applying  the  Dublin  convention,  and  the  aspects
relating  to  external  border  controls.

Special  attention  will  be  paid  to  projects  involving
associating
and 
training, 
non(cid:220)member 
the
applicant  countries.

studies 
in  particular 

exchanges 

countries, 

and 

to  emphasise 

The  Commission  also  wishes 
the
dissemination  of  information,  by  the  most  suitable
techniques,  in  order  to  reach  as  large  an  audience  as
possible  among  the  officials  concerned.  This  could  be
done 
the  devel(cid:220)
opment  of  training  or  the  dissemination  of  basic
knowledge  for  officials.

through  various 

tools,  ensuring 

Field  of  action  (e)

- Exchanges  of  officials

This  field  mainly  concerns  traditional  exchanges  of
officials,  over  a  sufficient  period  of  time,  to  famil(cid:220)
iarise  them  with  the  practices  implemented  in  other

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in 

the 

various 

areas  of 

administrations 
the
programme.  Such  exchanges  could  be  of  interest  to
staff  responsible  for  implementing  procedures  at  local
or  national  level,  depending  on  the  administrative
organisation  of  each  Member  State,  and  to  officials
responsible  for  devising  them.  Exchanges  could  also
include  officials  responsible  for  on(cid:220)the(cid:220)spot  controls
or  who  are  in  direct  contact  with  non(cid:220)Community
illegal
nationals  (asylum(cid:220)seekers,  foreigners 
situation  pending  repatriation,  etc.).  Since  a  general
project  was  set  up 
in  this  field  under  the  1998
programme,  a  reduced  appropriation  will  be  allocated
for  1999.

in  an 

Field  of  action  (f)

- Evalutaion

second  budgetary  period  of 

Evaluation  is  a  Commission  priority  in  the  context  of
the  programmes  it  manages.  The  1999  programme  is
the 
the  Odysseus
programme.  The  evaluation  will  therefore  mainly
cover  the  individual  projects  implemented  during  this
period  to  make  sure  they  match  the  initial  details  on
the  application  forms,  the  aim  being  to  measure  the
results.  At  a  later  date,  the  assessment  will  be  able  to
focus  on  the  programme  itself.  Since  the  Commission
is  taking  an  approach  in  this  field  which  encompasses
all  programmes  under  Title  VI  of  the  Treaty  on
European  Union, 
evaluations
it  will 
autonomously.

conduct 

An  estimated  EUR  12  million  is  provided  for  the
Odysseus  programme  for  the  five  years  of  implemen(cid:220)
tation.  In  1999  an  estimated  EUR  3  million  could  be
allocated.

The  estimated  amounts  to  carry  out  the  priority
projects  are:

Field  of  action

Estimated  total

(a)(cid:217)Training

(b)(cid:217)Topcial  issues

(c)(cid:217)Studies  and  research

(d)(cid:217)Exchanges  of  officials

(e)(cid:217)Evaluation

1(cid:216)000(cid:216)000

1(cid:216)000(cid:216)000

725(cid:216)000

200(cid:216)000

75(cid:216)000

Total

3(cid:216)000(cid:216)000

3.  Potential  candidats  and  submission  of  projects

The  potential  candidates  are 
the  administrations  of
Member  States  responsible  for  asylum,  immigration  and
the  crossing  of  external  borders,  or  other  civil  service

these 

departments,  in  particular  those  responsible  for  training
in 
officials 
fields,  and  higher  education  and
research 
institutions,  non(cid:220)governmental  organisations,
associations  and  foundations.  However,  other  bodies
should  not  be  excluded,  in  particular  those  operating  in
areas  related 
the  programme.
the  objectives  of 
Applications  from  individuals  will  not  be  eligible.

to 

languages,  provides  the  necessary 

With  regard  to  the  procedure  for  the  submission  of
projects,  the  memorandum  on  the  financing  of  Title  VI,
which  was  revised  in  December  1998  and  is  available  in
all 
information;  a
model  application  and  precise  instructions  for  preparing
the  financial  statement  and  a  model  budget  are  attached
to  it.  The  budget  must  be  expressed  in  euro.  You  are
strongly  advised 
this  document  when
preparing  projects.

to  refer 

to 

The  projects  for  financing  under  the  1999  budget  will  be
selected  once  the  submission  deadline  of  31  March  1999
is  up.

The  application,  duly  signed  by  the  person  responsible
for  the  project,  must  be  accompanied  by  a  brief  note
(two  to  three  pages  maximum)  summarising  the  project.
A  financial  statement  containing  as  precise  and  as
detailed  a  cost  estimate  as  possible  for  the  project  must
be  included.  The  description  of  the  project  must  contain
a  succinct  and  precise  description  of  the  purpose  of  the
project.

Recipients  of  subsidies  under  this  programme  undertake
to  include  an  explicit  reference  in  any  publication  or
external  broadcast  to  Community  financing  obtained
under  the  Odysseus  programme.

Project  sponsors  must  present  a  final  report  on  the
implementation  of  the  project  within  three  months  of  its
conclusion.  Final  payment  of  the  subsidy  will  be  made
only  on  production  of  the  final  report  and  supporting
documents.

Regardless  of  the  percentage  of  Community  financing
financial
granted, 
statement  must  be  accounted  for.

total  expenditure 

shown  on 

the 

Requests  for  further  information  and  forms  should  be
addressed  to:

Jean(cid:220)Louis  De  Brouwer,  Chairman,  Odysseus

Mr 
Programme  Management  Committee
Mr  Arnaud  Cochet,  Secretary  to  the  Committee
European  Commission,  Secretariat(cid:220)General,  Task  Force
for  Justice  and  Home  Affairs,
Unit  1,
Rue  de 
B(cid:220)1049  Brussels
Tel.  (32(cid:220)2)  296(cid:216)67(cid:216)46
Fax  (32(cid:220)2)  295(cid:216)84(cid:216)01
e(cid:220)mail:  arnaud.cochet-sg.cec.be

la  Loi/Wetstraat  200,  Office  N(cid:220)9  5/24  -