Communication from the Commission to the Council, European Parliament, Economic and Social Committee, the Committee of the Regions on a new framework for co-operation on activities concerning the information and communication policy of the European Union
Date: 2001-06-28
Institutions: European Commission
Subjects: EU institution, European Union, information policy, information processing

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 27.6.2001
COM(2001)354 final

COMMUNICATION FROM THE COMMISSION
TO THE COUNCIL, EUROPEAN PARLIAMENT,
ECONOMIC AND SOCIAL COMMITTEE, THE COMMITTEE
OF THE REGIONS

ON

A NEW FRAMEWORK
FOR CO-OPERATION ON ACTIVITIES CONCERNING THE
INFORMATION AND COMMUNICATION POLICY
OF THE EUROPEAN UNION

1

CONTENTS

Introduction

I.

I.1.

Co-operation between the Institutions and with the Member
States

An open framework for co-operation between the European Commission and
the European Parliament

I.1.1 The Inter-Institutional Group on Information (IGI)
I.1.2 The Operational Services of the European Commission and the European
Parliament
I.1.3 Co-operation on the ground - Representations and External Offices

I.2

A new Framework for co-operation with the Council and the other Institutions,
the Member States and the National Parliaments

II.

Commission information and communication services

II.1 General information services
II.2 Handling of sectoral information
II.3 Ways, means and evaluation

III. Follow-up

Annex:

Ways, Means and Evaluation of Information and
Communication Activities

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INTRODUCTION

The underlying aim of the Communication is to establish a new inter-institutional
relationship based on a new type of co-operation where common subjects and
interests are concerned. This will
implementation of information
policies, management arrangements that are easy to handle, decentralised and
involve as little bureaucracy as possible. It goes without saying that all of the
parties involved will remain accountable as regards the specific direction of their
own communication and information policy strategy. In the same way, all the parties
involved will retain their autonomy as regards political information relating to their
own institutions and getting their own priorities across.

involve joint

The purpose of the Commission communication is to set up a new framework for
It is a first response to requests
co-operation on information and communication.
made by the European Parliament and the European Council. On several occasions
the European Parliament has asked the Commission to set up a joint strategy in the
area of information and communication.1 Likewise, the Helsinki European Council
in December 1999 called on the European Parliament,
the Council and the
Commission to pool their efforts to put out co-ordinated general information on the
Union and to optimise the use of resources. The Commission was invited to “study
the general question of the Union's information policy, including improving co-
ordination with its information offices in the Member States and links with national
information offices.”

This is a big job, requiring considerable input from all the institutions and the
Member States in order to implement measures producing, as far as possible, quick
and persuasive results that will need to be evaluated regularly. Making a success of
this entails allocating additional human and financial resources.

In the context of a genuine overhaul of information policy, the Communication sets
out to:

• Devise an instrumental framework (identifying, sharing and pooling the

various tools);

• Enlist support for objectives which includedeveloping a proper dialogue with
the public; bridging the gap between the Union and the public; ensuring that
people have access to the right information; keeping messages to the point;
being proactive rather than reactive; creating a Europe that is close to people,
familiar to them and means something to them.

• Lay down arrangements for partnership between the institutions, the Member
level and civil society; partnership

States at national, regional and local
arrangements that help provide information at decentralised grassroots level.

1 Resolution of 14/05/98 on Information and Communication Policy in the EU

Resolution of 14/03/01 on the Information and Communication Strategy of the EU

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This corresponds to a new environment in a Union where there have been profound
changes. Public expectations and demands, the need to provide information at
grassroots level and the debate about European governance have the combined effect
of requiring all the parties concerned, both the Community institutions and the
Member States, to step up co-operation with each other and develop new ways of
working together. There is also a need for an inter-institutional approach to ensure
that the picture the public is given of the institutions and what they do is one that
hangs together rather than one that is muddled and piecemeal.

Given what is at stake, the Communication naturally calls for a debate; an open
debate, but one that is structured, with a clear timetable and properly targeted. The
Communication is, in fact, set out in such a way as to invite such a debate, since its
sole purpose is to lay down a framework that can be built on. The framework says
nothing about
the content. The purpose of a debate would be to concentrate
principally on content, thus fleshing out and adapting the framework.

I. Co-operation

between

the

Institutions

and with

the

Member States

The increasing and legitimate expectations of citizens to have full and easy access to
information on European affairs, European Governance and the development of the
Union calls for a modern, efficient and reliable information policy. To the
Institutions, in particular the Commission, the Parliament and the Council, who are
transparency (access to documents) and
committed to a policy of openness,
accountability, this new challenge is a welcome occasion to reinforce and rethink co-
operation between them and with the Member States.

The purpose of this communication is to suggest a new framework for the
information and communication activities of the European Union. In so doing it
recognises the responsibilities of the Institutions and the Member States. The
framework is not exclusive; indeed all the Institutions are invited together with the
Member States and national parliaments to contribute to the common effort of
information and communication.

The chosen approach is simple, un-bureaucratic and decentralised and aims to create
a basis of mutual trust and confidence between Institutions.

A Europe close to the Citizen

At the heart of Information and Communication policy is the obligation to bring
Europe closer to its citizens. The structures and Institutions themselves must adapt
to this imperative so that Europe is “round the corner” with information that is clear,
appropriate and in touch with real concerns. This matter is closely related to current
discussions on Governance of the EU and in particular how to equip the Institutions
better to fulfil their duty to inform and communicate. It is also essential for the
citizens to be informed on the European Union Charter on Fundamental Rights in
order to fully benefit from the Charter. In this way Information and Communication
will become a strategic tool of governance for the European Community and

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responds to the concerns and wishes expressed by the European Parliament on the
participation of the public.

The Institutions face many difficulties in reaching out toward the citizen and cannot
reasonably be expected to be able to launch and uphold a debate on their own. Ways
must be found to overcome barriers to communication whether of a linguistic,
cultural, political or institutional kind and taking full account of the differences
between Member States: a European Public does not exist today for most purposes.

We therefore have to adapt the message to convey according to the specificities of
the public addressed.

This requires full use of partnerships at all levels, making the best use of new
techniques and technologies of communication and providing mechanisms for
feedback from the citizen.

Accountability

While there must be a considerable degree of decentralisation in the provision of
information it is equally necessary to assure consistency and reliability in the flow of
information. The Institutions are and remain accountable for their actions. The
fullest synergy should where reasonable be achieved between the activities and
resources of each Institution.

Equally the Institutions – and their members - remain fully responsible for their
respective contacts with the press and media. Work with the press is a high priority
in today’s world and is the key to the immediate presentation of new information,
policies and opinions. The information and communication strategy should,
whenever possible, facilitate this work with the media by assuring that factual and
up-dated information on current topics is readily available. However, press-related
activities are not directly concerned by this
strategy on information and
communication. Each Institution remains responsible for its press activities and for
presentation, promotion and defence of its own policies and actions.

Integrity of the Institutions

The autonomy and integrity of all of the institutions is fully respected in the new
framework. In particular, the European Commission is solely responsible for the
communication and information activities relating to its exclusive authority, e.g. the
right of initiative, the guardianship of the Treaty or the execution of the Budget
under the control of the budgetary authority. The European Parliament, when acting
in its role as legislator, as budgetary authority or as the democratic control authority,
must have full independence to voice its opinion and its members to speak freely on
any subject of their choice.

Handling of information by the Institutions

As the ordinary citizen is unlikely to appreciate too many distinctions being drawn
less the different services of the
between the European Institutions, and still

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Commission, this not only requires improved mechanisms for inter-institutional co-
operation, especially between Commission and Parliament, but also continued
improvements within the Commission itself.

Information can be categorised in three ways. General information is aimed at the
public as a whole, though it includes information aimed at priority audiences such as
women and youth. The Commission, apart from explaining its own role, policies and
activities must also include the rights and opportunities which belong to members of
the public as citizens of the EU and the effect that actions at EU level have on them.
It naturally covers the EU decision making process itself, the accountability of the
Institutions to the General Public and areas of general
interest such as the
expenditure of EU funds.

Specialist
information is needed by specific groups with a need for in depth
information on some very particular aspects of EU policy. For instance in the
Commission exist Units within the DGs to help those needing this kind of
information.

Press information, much of it ‘up to the minute’ news, but also including specialised
background material is separate from both of these, and belongs in a category of its
own because of the audience to which it
instance addressed,
notwithstanding its enormous importance as regards the public as a whole.

is in the first

Information should be considered within a more general communication strategy,
which is designed to stimulate an informed debate on European matters. This does
not mean that the information services should take over the role of politicians who
are responsible for putting forward a particular stance towards the European Union.
However the fact that the Commission is responsible for bringing forward the
measures necessary to make reality of the articles of the treaty carries with it an
obligation to communicate the substance of what it seeks to achieve to EU citizens
as a whole. This task should be performed in partnership with the other European, as
well as national and regional institutions.

I.1. An open framework for co-operation between the European Commission

and the European Parliament

The important political priority given to Information and Communication activities
and strategies by both Institutions, a priority, which is also reflected in the allocation
of budgetary resources to the relevant budget lines, is clear and unchallenged. The
framework for co-operation between the Commission and the Parliament should
reflect this high level of political commitment as well as providing the basis for
operational decisions by the headquarters of each institution and practical co-
operation on the ground.

It is useful to identify the three levels of actors of this effort as the framework will
concern them all in different ways and lay out precise modalities for co-operation:

• The political level in the form of the Inter-institutional Group on Information
(IGI), which will define the general guidelines and priorities for the overall

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policy on information and communication in full respect of the sectoral
competence of Parliamentary Committees;

• The operational

level where the responsible services (DG PRESS and
Communication for the Commission and DG Information and Public Relations –
DG III – for the Parliament) will decide and oversee activities;

• The decentralised level at which execution takes place in the Member States

(Representations and External Offices).

I.1.1 The Inter-Institutional Group on Information (IGI)2

The IGI will be the central body for co-operation at political level between the
Institutions. It will have two important functions: to oversee the proper functioning
of the co-operation between the Institutions; and, on an annual basis, to review
progress and lay down orientations on the general and specific information activities
on which the European Parliament and Commission co-operate.

At an annual meeting, scheduled after the first reading by the European Parliament
of the Preliminary Draft Budget for the following budgetary year, the IGI should
adopt priorities for the future activities and review progress on the basis of a report
drawn up by the Commission and such other contributions from other Institutions as
may be appropriate. The IGI would have at its disposal a draft work programme on
information activities from the Commission and Parliament services,
including
activities planned in each Member State. It will also draw up multiannual guidelines
on information and communication activities.

The IGI will, as part of its responsibilities for the overall programming of common
activities, adopt recommendations as necessary and make suggestions for the
conduct and financing of the major information campaigns. It will be given regular
reports on the execution of information activities undertaken by the Institutions in
order to enable a fully informed political discussing of achieved results and future
objectives.
The IGI strategy decision, based on the review of ongoing activities, includes:

• Selecting priority areas for information activities for the following year(s);
•

Identifying, for each selected priority, the general objectives to be reached and
the strategy to be followed;

• Defining the tools to be used (PRINCE, other major campaigns, etc.);
• Recommending arrangements for monitoring and impact assessment.

The IGI could meet on other occasions throughout
the year when considered
appropriate in order to examine the progress of major activities and making
appropriate suggestions to amend and re-direct ongoing campaigns.

2 The IGI is a joint working group with members from the Commission and the European Parliament
and co-chaired by the two institutions. Its initial remit was restricted to priority information measures
(PRINCE campaigns). It has now been extended to cover all information and communication activities.

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The IGI Assessment of the co-operation between the Institutions should be a
permanent activity and a fixed point on the agenda for the annual meeting. In this
context it will be considered whether it is necessary to review the code of conduct in
the area of information and communication.

Each Institution takes note of the decisions of the IGI and the recommendations
made while preserving full autonomy and integrity. In particular each Institution
should explicitly state how their Members will be involved in information
campaigns and activities.

I.1.2 The Operational Services of the European Commission and the European

Parliament

The Services of the two Institutions (DG Press and Communication – DG PRESS -
for the Commission and DG Information and Public Relations – DG III – for the
European Parliament) are charged with preparing, implementing, monitoring and
evaluating information activities in accordance with the guidelines established and
the instructions received within the agreed framework. The co-operation, exchange
of information and mutual assistance between the services cover all of these steps.

The Commission’s and the Parliament’s Directors-General
for
information and communication assist the IGI in its work. These DGs or their
representatives will meet regularly and at least twice a year to examine reports on
the execution of information activities, exchange information on current planning of
activities and prepare the discussions of the IGI.

responsible

Either DG invites as a matter of course a representative from the other Institution to
participate as an observer in its editorial committees of other similar groups in
charge of general information activities. These DGs will also endeavour to associate
the other Institutions and, where appropriate, other bodies, including representatives
from the Member States involved in information activities with their work.

When a group or committee charged with editorial or other information-related
responsibilities is created by the operational services (DG PRESS and DG III) at
central level they invite the other to nominate an observer.

The Directorates-General of both Institutions should give further consideration to
arrangements for the sharing of means of communication, as is already the case for
example for the EUROPA web-site, Europe by Satellite broadcasts (EbS) and the
Libraries of the Institutions.

The Directors-General of PRESS and DG III should also meet with their
counterparts of the other Institutions, overview the work done by the existing co-
ordinating committees (e.g. on Europa or on Europe by Satellite). They should
ensure that the Institutions exploit consistently the potential of modern technologies
and provide the public easy access to updated information.

The possibility to create an advisory body on Information and Communication
comprising representatives of the Institutions, the Member States, and with the

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possibility of co-opting external advisers and specialists for specific purposes will be
examined (such as best practices in the use of communication instruments, how they
can be used together most effectively, evaluation criteria and impact assessment).

I.1.3 Co-operation on the ground - Representations and External Offices

The Commission Representations and the European Parliament External Offices in
the Member States are at present co-operating locally on an ad-hoc basis. Both
Institutions have allocated considerable resources to their activities and expect a
corresponding feedback in relation to the specific tasks defined for the local entities.
In the new framework for co-operation a high degree of local co-ordination,
exchange of information and co-operation is both necessary as it enhances the
efficiency of the actions.

Scope and method of co-operation

The Representations and Offices are to be considered the centres for all
decentralised co-operation in the Member States within the new framework. All
areas concerned by the decisions and guidelines laid down by the IGI are included.
Activities and actions
the sole
responsibilities of either Institution do not fall within the purview of local co-
operation in the Member States.

relating to areas, which are and remain,

The Heads of Representation and External Offices will be responsible for the
implementation on the ground of the activities identified by the IGI and made
operational by DGs PRESS and III respectively. As a rule the co-operation is to be
based on systematic local contacts and regular exchange of forward plans and
initiatives. Whenever possible the Offices and the Representations should seek
common solutions to common problems.

The Heads of the Representation and External Office in each Member State are
responsible for the co-operation on the ground between their two Institutions. They
systematically invite each other
to participate in steering groups, editorial
committees etc. at local level when the subject matter is of common interest. In
order to facilitate the regular co-operation the following provisions apply:

•

•

•

a monthly meeting is held between the Heads of Representation and Information
Office at the office of one of them, alternating;
a copy of the written agenda and summary minutes of each meeting is forwarded
by each Head to his Institution;
the Heads of all Representations and External Offices meet twice a year; one of
the meetings will give priority to preparing the annual meeting of the IGI.

The co-operation respects all local conditions and special circumstances of the host
country. The Institutions remain committed to seeking a maximum of synergy in
their operations, including joint premises, information outlets, electronic linking of
internet sites etc. as well as in all other practical ways of collaborating.

Finally, the Heads of Representation and External Offices undertake to take into
information and communication actions where appropriate
consideration in all

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precisely how Members of the two Institutions may be invited to participate. In all
case appropriate steps must be taken in order to promote pluralism and open debate.

Joint actions – mission statements and code of conduct

Basic information about the EU and its policies should be a joint responsibility of
the Commission, European Parliament, Council,
the other Institutions and the
Member States. Relays and networks that are adapted to the circumstances in
individual Member States best carry out this work.

These information providers should be as close to the citizen as possible - the EU is
around the corner, not a foreign policy issue. It is particularly important in some
Member States to find locally trusted and credible carriers of the messages the
Institutions want to pass on. It is also important to keep in mind that even working
the Institutions can not reach all citizens by themselves. Therefore
together,
partnerships with Member States, civil society and NGOs are of crucial importance.
The information must be modern and user friendly, addressed to people’s real
concerns. The Representations have a responsibility for co-ordinating, training and
feeding the relays and networks with support from the relevant units at the centre.

Against this background there is good reason to review and if necessary amend the
mission statements of Representations and Offices. The Commission proposes to
re-examine its provisions to take account of the new framework for co-operation;
this entails adding provisions concerning information to “general public” as a
priority to be added to the two existing priorities relating to “media” and “political
contacts”. Other amendments would concern the campaigns and other actions
adopted by the IGI to ensure that they are given proper priority on the ground.

A proposal has been made to the Parliament similarly to amend the mission
statements of the Offices, in particular in relation to the activities directed at the
press and media in the regions. It could be considered to include “work through the
relays and networks” among the priorities.

Finally it could be envisaged to review the code of conduct between the European
Commission Representations and the Eurpean Parliament Offices in the Member
States (January 15th, 1998)
the principles outlined in this
communication, lay down the formalities of the proposed regular meetings and
identify the areas of co-operation.

in the light of

I.2 A new Framework for co-operation with the Council,
Institutions, the Member States and the National Parliaments

the other

The responsibility for information and communication falls on all Institutions and
the Member States. The co-operation framework described here should be open and
all Institutions and the Member States should be invited to participate wherever
appropriate and feasible.

The Council

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The Council has a different information and communication policy comparable to
those of the European Parliament and the European Commission, as it has limited
budgetary resources for this purpose. It does operate its own relations with the press
and media and shares some means of communication with the other Institutions.
However the Helsinki European Council asked that the Council be associated with
the effort of providing general coherent information on the European Union. The
European Council also called on the Commission to improve co-ordination between
the Representations in the Member States and the National Information Authorities.

At present the Council participates in the EUROPA web-site and in Europe by
Satellite alongside the other Institutions. The Council is represented on the editorial
in formulation of
and managerial committees but does not otherwise take part
information and communication policies. The Council is not at present a member of
the IGI.

Future developments could include information and communication from the
Council on second and third pillar issues. This would involve inter-institutional
co-ordination between Commission, Parliament and Council beyond simple sharing
forward a
of means of communication. So far
the Council has not put
comprehensive strategy but
the establishment of the rapid reaction force and
increased Union participation in international peace-keeping operations may be an
occasion to change that. The Commission will invite the Council to consider how
the Institutions should handle these issues and how the Council envisages its
participation in the IGI.

It is likely that individual governments consider that they have ample means of
information and communication at their disposal. The scope for joint actions at the
level of the Union involving both the Council and the Member States is probably
limited to sharing of means of communication. Apart from the electronic media of
EUROPA and EbS, the establishment of a joint Visitors’ or Information Centre in
Brussels and closer co-operation on libraries are being actively considered, though at
present without firm conclusions. Co-operation among the Institutions in the joint
production of press cuttings and reviews could provide a better service and
economies of scale in a field of common interest.

Other Institutions and bodies

All the Institutions should be invited to contribute to the information activities of the
Union within their specific areas of responsibility. The Commission proposes to
include information activities in all the normal contacts between Institutions. There
should be mutual understanding and proper inclusion of information from the
institution in information materials for public use. This is already the case for
example in the relations between the Commission and the Committee of the Regions
and the Economic and Social Committee.

The joint declarations between the Commission and the two Committees, which are
being finalised at present, will include these aspects and the role they may play vis-
à-vis civil society and the regions. The Commission remains open to any proposals
in this respect from the other Institutions.

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Member States and National Parliaments

the disposal of the public it

As the information strategy must involve a wide range of means and techniques for
placing information at
is also necessary for the
Institutions to seek and obtain the full co-operation of the authorities of the Member
States at national, regional and local levels. It is clear that an effective information
and communication strategy must ensure that messages are received by the citizens
at the most local level. The Commission should enhance co-operation with national,
regional and local administrations whilst naturally respecting the constitutional
balances of each Member State.

Where policies are agreed and established, Member States together with regional
and local authorities share directly in this task, and are often best placed to provide a
framework for the diffusion of information, particularly at the local level.

Efforts to decentralise the provisions of information to the public to a partnership
arrangement with the Member States will be pursued. Such arrangements exist
already in Paris and Lisbon and will soon be in place in Rome. In other Member
States, different forms of partnership involving national, regional, local and civil
society bodies might be appropriate. In all cases the thrust of policy is to provide
information to the public through a partnership between the EU Institutions and the
Member State’s own facilities, not only in the Representations or the External
Offices.

The options for joint actions with government agencies in the Member States
include joint information activities co-financed and co-managed through a signed
agreement (convention). The activities may concern permanent information centres
like Sources d’Europe in Paris, the Jacques Delors Centre in Lisbon and the CIDE in
Rome; or they may relate to specific policy priorities like the Euro or Enlargement
information activities. Apart from the very positive signal of co-operation, there are
many other advantages to such joining of forces, not least the involvement of the
media, recourse to specialised personnel and the possibility of reaching groups of
the population which no European institution may reach alone.

Member States have reacted differently to the advances of the Commission
regarding conventions. Some have embraced the proposals with enthusiasm and are
the idea. Others have agreed to
likely to want to further expand and exploit
participate within narrowly defined objectives (e.g. information campaign on the
Euro) and limited in time;
they may be willing to look at other issues like
enlargement. Only two Member States have not yet agreed to any conventions.

Government information agencies – where they exist - have not been approached in
a systematic way by the Commission. Directors-General for Information - or their
equivalent - were invited to a meeting in Brussels in 1999 to discuss options for
common actions,
in particular regarding the Euro. Some Representations have
maintained bilateral contacts with national agencies, but no general picture exists.
The reason for this is no doubt that there are significant differences between the
Member States; some have central Agencies responsible for public information on a
grand scale, others operate a very decentralised system of public information with
little or no central co-ordination.

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Examples of co-operation concern mutual references and links to internet sites and
similar cross-referencing. There are no examples of mutual membership of editorial
boards or joint publications. It should be possible, however, to associate the national
authorities – where they exist – with general European campaigns, and that should
be the rule if there is a convention.

As regards national Parliaments, co-operation with the Representation is seen as a
purely local affair. The European Parliament has similar experience. Some Member
States have information offices at
their Parliaments and the Representation is
normally in contact with them; in other cases there is no formal contact with the
Parliament, only with individual MPs and political parties. The Commission has not
taken any general initiative to approach national parliaments. All such initiatives
will be undertaken in close co-operation with the European Parliament.

II. Commission Information and Communication Services

II.1 General Information Services

DG Press and Communication

relations with the media. The fact

The Directorate General for Press and Communication is responsible for the
Commission’s
the Commission’s
Spokespersons specialise in a particular area of Commission policy is designed to
ensure the provision of information of high quality within an overall framework
which involves the other Directorates General.

that

Within DG PRESS responsibility for the press is shared with Representations of the
Commission based in the Member States. Unlike their colleagues in Brussels, the
Representation staff who deal with the press will
in general be speaking to
journalists who may not be specialists in European matters, but, for example,
political, economic or industrial correspondents within the national press who
increasingly include European aspects in their coverage of national affairs. In
addition, Representations have a vital role as regards information to the regional and
local press which do not have journalists dedicated to reporting European matters on
their staff.

A large number of specialist newspapers and magazines often seek help from the
Representations. Furthermore, apart from journalists, the Representations also have
contacts with editorial staff and leader writers.

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Representations’ role and priorities in the new framework

The Representations of the European Commission represent and are at the service of
the Institution as a whole. Their tasks involve:

• A direct role with the media on behalf of the Commission, acting within the

priorities laid down by DG Press and early warning on major issues;

• Political networking and the feeding back of intelligence to the Centre in

Brussels;

• Assistance in provision of information to the general public on priority themes,
where appropriate in partnership with Member State authorities and the
European Parliament. This function is carried out, under the authority of the
Representations, mainly through networks of information providers established
in association with the Member States and other regional or local bodies.

Explaining the Commission’s policies is an important feature in the first two of the
three priorities which remain the core activities of the Representations when they act
as representatives of the Institution. The new framework should imply that the third
priority is given equal treatment in the future, to reflect the new co-operation with
the Parliament. The Representations will continue to play a crucial role in helping to
implement major information activities decided upon by the Commission within the
framework of PRINCE3.

The Parliament’s External Offices are only marginally associated with the networks
at present. There is much scope for closer involvement of the EP in two ways: the
Offices could be invited to use the networks for institutional information from the
EP and should in time be invited to reflect on the location, the size and the structure
of the networks. Secondly, MEPs should be invited to participate in local events
organised by or through the networks.

In addition to the core activities, Representations also handle other tasks such as
acting as an extension of the services in Brussels. Examples include helping to
manage DGs programmes, handling recruitment inquiries, tenders, and complaints
by citizens. The Representations assist with high level visits from the Commission
in Brussels and provide support when the host country holds the Presidency.

The Representations should further develop the networks including at regional and
local level and involve them as active partners in the general information activities,
in organising events and providing training for network personnel.

The Representations and the Offices have a key role to play in inter-Institutional co-
operation on a decentralised basis. Close working relationships between
Representations and EP External Offices will be of growing importance in planning

3 The PRINCE programme, which was introduced in 1995 largely at the instigation of the European
Parliament, involves priority campaigns in partnership with the institutions and the Member States.: It
is now applied to enlargement, to the euro, to the debate on the future of the European Union and to the
new campaign on the creation of an area of freedom, security and justice.

14

and carrying out their respective activities. Many activities now undertaken by the
Representations will
therefore fall within their remit of inter-institutional co-
operation. The Annex of this Communication gives an overview of the possible
evolution of these activities within the new context of close co-operation.

It is proposed that annual definition of information and communication priorities
should take place with Representations each September for the budget year that
follows. Proposals for action will be prepared by Representations on the basis of
these priorities and a copy will be given to the External Offices for information.
Final agreement would be given in the light of IGI conclusions and the internal
Commission budget hearings and decisions. The Parliament Offices should be
invited to follow a similar procedure. Each year, Representations and Offices should
submit activity reports, as part of the evaluation exercise, which will include the
exchange of information priorities.

II.2 Handling of Sectoral Information

The Directorates-General and Services within the Commission have information
units responsible for sectoral information; eg environment, competition, trade, social
policy, agriculture etc. These services have at their disposal specific budget lines for
this purpose; these are not covered by the present communication. There is also a
particular role to be played by the DGs responsible for external relations in
providing information to citizens of third countries including information for the
general public in applicant states. Demand from other third countries will often be
of a more specialised kind. There are of course many journalists from third
countries in the Brussels press corps who receive exactly the same service as their
EU colleagues. These aspects are not covered either by the present Communication.

The Information Units perform a very important job of making Commission policy,
decisions and activities known to the public at large or specific groups of population.
The services use printed, electronic and other media for this purpose as well as
meetings, conferences, visits and speeches. This activity is indispensable for the
good functioning of policies;
is also an effective and useful way for the
Commission as an Institution to reach a wider audience than it can through the
general activities and campaigns.

it

It

is

While the work of DG PRESS and the Representations is co-ordinated within the
same Directorate-General there is no such direct mechanism as regards information
provision by other Directorates General.
increasingly recognised that
information is a key element of policy making and that in this area it is vital in order
to avoid loss of
impact or misunderstandings. The Spokespersons having a
responsibility for a specific subject area can contribute to assure the coherence of the
message in an unbureaucratic way4. It is also the case that while the Representations
themselves keep close contact with key target audiences such as industry, trade
unions and non-governmental organisations, those with very specialised interests
will naturally keep contact with the unit which has information responsibilities
bearing on their own field of activity.

4 Declaration of Presidents with a protocol on co-operation in annex

15

As information and communication are the key partners of policy formulation, the
best way to start would be to identify the main policy events that have a high profile,
making four or five key policy priorities the main foundation for information and
communication activities that will provide a firm basis for a co-ordination between
policy and information as a whole. The Commission now announces its key policy
priorities and financial orientations through the Annual Policy Strategy in the
Spring. The Commission’s annual Work Programme remains an important event,
linked as it is to the state of the Union debate at the end of the year. However, it will
become much more political and focused on priorities than in the past, which should
facilitate its use for information and communication purposes. Another new feature
is the presentation by the Commission of an annual report on its activities, which
should become another important
information and communication event. The
Director-General for PRESS should meet with other Directors-General to discuss the
implications for information policy of these events and establish mechanisms for
implementing appropriate information activities. Clearly this co-ordination will
enhance the high quality information provided by the different services.

Other matters will arise during the course of the year in question, but making four or
five key policy priorities the main foundation for information and communication
activities will provide a firm basis for a co-ordination between policy and
information as a whole. Implementing these priorities will involve the specialist
DGs themselves, the Representations and, for overall co-ordination and presentation,
the services of DG PRESS in Brussels. With the basis for co-ordination firmly
established, the Commission will be better placed to deal with unexpected issues as
they arise.

There are also mechanisms such as the Priority Publications Programme.
It is set
within the framework of the annual Work programme of the Commission and its
publications are targeted to the general public. This is to provide a structured and
coherent message and make it possible to get an overview of the range of
Commission information materials as a whole.

Other mechanisms for co-ordination are already in place including joint participation
in the running of the Europa web site and Europe by Satellite. Furthermore, within
the framework of information campaigns under the PRINCE programme on specific
topics, such as enlargement, there are full co-ordination mechanisms not only within
the Commission,
including the Representations, but also with the European
Parliament and often the Member States.

II.3 Ways, means and evaluation

No information or communication policy can be properly developed without the
requisite ways and means at its disposal. In the last few years the Commission has
put in place a system whose coherence and visibility must be maintained. As well as
the priority information activities (PRINCE), pride of place must go to networks
and relays, as well as the value-added services: Europe Direct, Eurojus, Signpost
Service. These rely on the various media placed at their disposal, such as Europe by

16

Satellite (EbS), the Library, Documentation Centres, publications and audio-visual
co-productions etc.

These instruments and their means of evaluation are presented in the annex to this
communication as well as their use within the framework of co-operation with the
other Institutions and the Member States. This particular group has been identified
jointly with the European Parliament.
It is around all these instruments that co-
operation with the other Institutions, the Member States and civil society should be
made tangible. The Commission proposes to revue each instrument with a view to
defining the appropriate level of co-operation. To that effect, some suggestions are
put forward by the Commission.

Externalisation possibilities

Today some current Commission information activities are handled by services
external to the Institution. In this way information produced by the Commission may
more easily reach the citizen, who will also be better served. By involving external
services we can significantly increase the accessibility to information while the
Commission remains fully in charge of the information of its electronic and printed
products.

The establishment of an inter-institutional information agency merits consideration in
this context. The Helsinki European Council has asked the Council, the European
Parliament and the Commission to consider the creation of an agency of this nature.
While each institution would continue to be responsible for the information it
produces, the agency could be made responsible for a number of activities, e.g.
Central Library, visits
(headquarters); press cuttings and
distribution, storage and restocking of all materials in all information outlets in the
Member States. It could be considered if the agency should also be able to produce
materials or publications of a general nature.

to the Institutions

The Institutions will be invited, on the basis of an options paper
from the
Commission, to consider to what extent information activities are and could be further
“externalised” through recourse to external service providers at central and local
levels. A more thoroughgoing initiative, could consider whether on not the creation
of an inter-institutional information agency, should be launched for this purpose. In
the Commission’s view the creation of such an agency should be based on needs
resulting only from experience.

III. Follow-up

The Commission intends to exploit
Information and
Communication in an active and constructive manner. To summarise: the framework
provides us with an organisation for co-operation, a range of instruments and tools for
information and communication activities and a number of methods for evaluating the
information which is provided by the institutions.

this new framework for

The Commission will thus endeavour to create an information and communication
policy which is:

17

• Sustained and permanent: the public should know that factual information is
available at all times; that information on European affairs is not an exclusive
Commission privilege but a shared responsibility between all the institutions and
the Member States. The purpose of the Communication policy is to produce and
convey quality messages that are tailored to their audience and lasting.

• Decentralised and based on multiplier effects; in recognition of the impossibility
to communicate directly with the general public the delivery of information must
rely on a multitude of outlets and operators; the Commission will continue to
develop and strengthen its actions through journalists and the media, the networks,
public and semi-public organisms, the private sector, the NGOs and the civil
society;

• Suited and appropriate; in today’s mass of information it is necessary to ensure
that the message and the means by which it is delivered suits the public to which it
is addressed and is received and understood; therefore the actions are subject to
constant scrutiny and adjustment.

The Commission invites the other institutions and the Member States to join in this
effort.

***

Recent events, such as the low turnout in European elections and the results of various
referendums, are ample proof of the public unease that needs to be addressed.

Since the adoption of the Maastricht Treaty, this unease has manifested itself as a
mismatch whereby the public are generally well-disposed towards the major European
ideals the Union stands for, but have a nagging mistrust of the institutions and what
they do despite the positive real-world effects that are there to be seen, such as
economic recovery, the introduction of the Euro, the creation of an area of freedom,
security and justice and a stronger voice for the Union on the world stage. The root
cause of this dissatisfaction is the failure to convey what the policies are being
pursued for, often coupled with a widespread feeling that not enough information is
being provided. People also find it difficult to put a face to who is doing what in the
Union and strongly feel that proper account is not taken of the realities on the ground.
It is this vicious circle of disenchantment, the mismatch between expectations and
immediate perceptions, that needs to be broken, by enlisting all the relevant parties as
promptly as possible; this means the institutions, the Member States and civil society,
within the framework of their own responsibilities. To this end, this Communication
In this
sets out to create a framework for better information and better discussions.
context the information and communication strategy must naturally be considered
within the wider discussions on governance and the need to stimulate informed debate
and greater public engagement.

The result of the recent Irish referendum on the Nice Treaty makes it more necessary
than ever to bring together all participants in the effort to provide information about
the European Union. “Brussels” alone cannot explain the policies, activities and
future of the Union. Information must come from those closest and most directly
related to the citizen: elected representatives and Governments at all levels.

18

The European institutions, at central level and on the ground in the Member States,
must play their part by working together to explain what they do and why. They must
also assist
the EU
generally. This paper is intended to create a framework for a new co-ordinated
strategy. The content of that strategy should be a matter of urgent debate between
European and Member State institutions in the coming months.

in the co-ordination of efforts to provide information about

This debate will take place on the basis of a concerted approach, in particular the
consideration of a series of questions which should include :

-

-

-

-

-

-

how to ensure mutual respect for the specific competences of each Institution;

clarification, where appropriate, of the role of each Institution, especially in
relation to the Council, Member States and the national Parliaments;

a clear distinction between information and communication, each having a
separate concept;-

the search for a proper balance between the need for global coherence of the
messages and necessary diversification which takes into account national
differences;

the use of external expertise whenever this is desirable and possible, but
evaluation should remain within the Commission in liaison with the IIG;

the elimination of all contradictions or duplications in relation to campaigns
already under way (Euro, Enlargement, the Future of the Union).

The present Communication enables the Commission to embark on the next step in
the process, which will be the analysis of the reactions from all institutions as well as
the administrations and parliaments of the Member States. In addition, the outcome
of the wider debate, which will be launched after the summer, must also be examined.
At the end of this year the Commission will present its conclusions based on the
discussions and proposals put forward with the view to preparing a Communication
on the substance.

19

ANNEX

WAYS, MEANS AND EVALUATION OF

INFORMATION AND COMMUNICATION ACTIVITIES

CONTENTS

Priority Information Activities (PRINCE)

Networks and Relays

EUROPA and Publications

Europe Direct, Eurojus, Signpost Service

TV and Radio Broadcasts and training for journalists

Central Library and network of documentation centres

Visits

Evaluation

1.

2.

3.

4.

5.

6.

7.

8

20

1

Priority Information Activities (PRINCE)

PRINCE is synonymous with solid inter-institutional co-operation. The programmes
lay down a global approach with clear and precise objectives and messages targeting
specific audiences.

PRINCE operates on the following principles:

• Grassroots and decentralisation;

• Partnership;

• Flexibility and transparency.

Grassroots and decentralisation: with this in mind, several major projects financed by
PRINCE have been devised, designed, implemented and monitored “on the spot” by
the Commission’s Representations in the Member States with the involvement of the
European Parliament’s external offices.

Partnership: this involves the Member States (on the basis of agreements concluded)
and civil society (through calls for proposals).

Flexibility and transparency: this sets clear and visible priorities and allows the
to establish forward planning within a solid
Commission and the Parliament
the IGI is associated with the
budgetary framework. Because of the fact
programme PRINCE is also a focal point for the development of the information and
communication priorities of the two institutions.

that

Through proper co-operation and agreement on political priorities it must be assured
that budgetary resources for the actions are available.

Some campaigns are intended just to provide information, such as the campaign on
the Euro. Others, such as the campaign on the future of the European Union, are
intended to stimulate debate, while others still, such as the new campaign on
enlargement, are meant to serve both purposes.

The purpose of all these campaigns is to get
discussion outside the narrow circle of specialists.

information across and stimulate

The PRINCE programme, which was introduced in 1995 largely at the instigation of
the European Parliament, initially involved three priority campaigns: “Citizens First”,
“Building Europe together” and “The Euro”. It is now applied to enlargement, to the
euro, to the debate on the future of the European Union and to the new campaign on
the creation of an area of freedom, security and justice. The euro information
programme will be continued in 2002 and possibly beyond according to the needs of
the pre-in and/or candidate countries.

The enlargement communication strategy, adopted on 10 May 2000 by the
Commission, set out a multi-annual action programme and identified the budgetary

21

means to enable a decentralised approach, including the use of partnerships, notably
with civil society.

The debate on the Future of the Union comprises two separate but interactive
dimensions that were defined in the Commission communication (COM/2001/178
final):

each Member State should organise and stimulate debates taking into account

-
its specific national constraints;
-
debates and the discussions between Member States.

as the debate on Europe develops it should take into account the national

The communication specifies the practical means (types of actions and resources) and
the Commission’s contribution. The present communication does alter this in any
way.

The area of freedom, security and justice was clearly designated by the Amsterdam
Treaty as the Union’s next political frontier. It introduces free movement for people
residing legally on the territory of the Union. This area of freedom cannot be taken
full advantage of unless security and justice are safeguarded for everyone within it.

The Charter on Fundamental Rights is laid out in a clear and readily understandable
text directly addressed to the citizen. As the debate on the future of the Union,
including the preparations on the IGC 2004, come underway it would be logical to
make a main topic of a general campaign on the dynamics and method of the Charter.

Finally, the role of the European Union in the world. Whether in respect of its
political and economic role or in the area of development, humanitarian aid and
conflict prevention,
the European Union has become a major player on the
international stage. Likewise the role of the Union in peace-keeping is asserted
through the Common Security Policy. This external action of the European Union,
which is more and more established in the eyes of our partners, remains un-recognised
by our own citizens. Any proposal for a campaign in this area would be in line with
the general orientations of the activities under the PRINCE programme.

2. Networks and relays 5

Information relays mean a decentralised structure with locally situated physical
premises open to the public, set up by a body and run by it. As powerful tools for
decentralising information provision, relays ensure that information activities have a
human face and are tailored to highly varied specific needs.

Development of the relay system:

•

Is based on the principle of subsidiarity and a commitment to engaging in active
partnerships with bodies that are well-established in the socio-economic set-up in
their region and, as such, in direct contact with the public;

5 The specialized relays and networks, created to support the development of small and medium sized
enterprises, innovation and research etc are outside the scope of this communication

22

•

Is part of a framework set up in close co-operation with the Representations;

• Aims for a balanced geographical spread of the centres across the Union.

There are relays at three levels: national, inter-regional and local/regional.

National-level centres:

There are currently two national-level centres in operation, one in Paris (Sources
d’Europe) and one in Lisbon (Jacques Delors Information Centre); a third centre has
just been set up in Rome (Information and Documentation Centre– CIDE). The
Commission and the Member States are bound by a partnership agreement under
which they share the financial costs equally between them. The Representations
monitor the activities of the centres and Commission representatives sit on their
management bodies alongside representatives of the Member State concerned.

The purpose of the centres is to develop an integrated system of information on the
Union using local relays. Their main functions are to act as:

•

•

head of the national network for all the other relays: Info-Points and, at local
level, the “guides” (information kiosks); information centres;

a document resource centre as well as producing various materials (leaflets,
brochures, etc.) for the network.

On specific terms the centres’ management bodies allow for any organisations or
institutions, whether public or private, and any national or regional authorities to get
involved with the centres and work together alongside the founding members. Here
the European Parliament will need to clarify its intentions regarding its involvement
with the national-level centres.

Centres at inter-regional level 6

Relays of this type have been set up to cater for regions considered a priority from a
socio-economic point of view (regions whose development is lagging behind) and
from the point of view of their geographical or geopolitical position: for example, the
South of Italy, the northern dimension, proximity to sensitive areas, such as the
Balkans or the southern coast of the Mediterranean basin, or proximity to the borders
with the countries applying for accession.

The Commission has no management responsibilities in these centres, but ensures that
the objectives set are properly adhered to by means of regular contact with its
representations and its central administration in Brussels

Local/regional level

6 “Jean-Monnet-House” in Berlin, the “Thessaloniki Centre”, and the “Naples Centre”

23

Local-level relays are the cornerstone of decentralised information policy. Their job is
to convey the information in line with everyday reality and the local economic
context. These relays are grassroots information centres par excellence.

They are managed directly by their host bodies (regional or local authorities, public or
semi-public bodies etc.). The Commission does not have any responsibility for their
day-to-day management, but provides a grant and contributes to technical and
documentary assistance on the basis of an agreement signed with the host body. While
respecting the relays’ autonomy,
the Commission
nonetheless ensures that a certain uniformity is retained and their shared identity
safeguarded (shared logo). A Help Desk facility has been introduced, integrating the
aid, assistance, co-ordination and management functions. The Commission has also
just set up a Permanent Monitoring System, which uses modern technology to make it
possible to monitor and become better acquainted with what the different bodies are
doing.

initiatives and diversity,

There are two types: Info-Points Europe (IPE) and Rural Information Carrefours.

•

•

The INFO-POINTS EUROPE are usually located in the capital of the province
or region and deal with information for people living in towns and cities. There
are 139 such info-points and the vast majority of them (80%) are housed by the
regional or local authorities and sometimes by specialised associations;

The RURAL INFORMATION CARREFOURS are targeted more at people
living in the countryside; there is a network of 130 of them.

The Info-Points Europe and the Carrefours now cover a large area of Europe, but it is
still not sufficient. This is why the Commission is proposing a five-year plan to
achieve more comprehensive coverage of the EU regions. Eventually each region
should have at least one focal point for information. This will obviously require
additional resources, but it should be borne in mind that the funds provided by the
Commission are principally intended to have a lever effect and mobilise investments
of much larger sums. This aim to extend the networks must be an aim shared by the
institutions and primarily the European Parliament. For example, MEPs from the
region where the Info-Point is situated could be routinely invited to participate in the
various events. The European Parliament’s External Offices could make use of the
network and their suggestions regarding the location, size and structure of Info-Points
will be welcome. These possibilities are also offered to other Institutions and organs
of importance including the Committee of the Regions.

It goes without saying that this expansion will now need to take account of the
countries applying for accession.

A final element in the relays providing general information for the public is the
experimental network of 19 centres known as Urban Forums, whose role is to
disseminate information on sustainable urban development.

In some Member States the Representations have organised networks not financed by
the Commission (public libraries, local authorities, chambers of commerce etc.). The
Representations give them as much support as possible for them to provide reliable
information on Europe.

24

The Commission also gives financial, documentary and organisational support for
information activities by large independent networks, such as FIME (Fédération
internationale des Maisons de l’Europe) and the European Movement.

Mention should finally be given to the considerable logistical support provided by the
network of European Documentation Centres (EDC).

Team Europe and Groupeuro (speakers' network)

In parallel with measures to establish information networks on a permanent footing,
the Commission has also set up networks of speakers who are taking an active part in
the debate on the Community (in 2000 there were 10 000 interventions and more than
700 appearances in radio and television programmes). These speakers operate at local
level and act as information multipliers.

The Groupeuro group of speakers was set up in response to numerous requests for
input on EMU and the introduction of the Euro.

In some Member States a "Team Europe Junior" also provides information for young
persons.

3. EUROPA and Publications

EUROPA was initially launched on the Commission's initiative and dates from 1995.
Following a suggestion from the European Parliament, the Secretaries-General of all
institutions set up a Task Force in 1997 which subsequently developed into the
Interinstitutional Internet Editorial Committee, with the Commission providing the
chair.

One of the outcomes of this co-operation has been a common vision of the content
and presentation of the headings in the general homepage and the underlying pages. A
common graphic chart has been established with general presentations and common
or related navigational aids have been recommended so as to give overall uniformity.
In future this collaboration will be gradually adapted to focus on the content on the
various sites.

At the present time EUROPA is undoubtedly the most significant site available to the
public and the most visited in Europe. It can compare with some US sites, such as
those of the Congress and the Presidency. Each day there are 1.5 million visits to the
constituent documents. Consultations are currently doubling each year; it should be
noted that the site consists of 1.5 million documents and 60 databases, which each can
contain several hundred thousand documents.

This means that EUROPA is now experiencing very strong growth and handling
information that is bulky, complex, varied, changing and multilingual. It must meet
growing multilingual requirements, increasing and regular updating for increasing
numbers of varied users, with the number of non-professionals rising significantly,
and indeed their behaviour is becoming the reference standard.

25

That is why the Commission is currently preparing new changes that will usher in a
major improvement in quality. They will bring about a second-generation EUROPA,
EUROPA II, which will soon be placed before the full Commission. The conclusions
warrant a discussion at inter-institutional level on terms to be specified.

The Commission's objective is that EUROPA should represent the most up-to-date
practices of the new governance in Europe, symbolised by the terms "e-Commission",
rapid and
"e-Europe" and "e-governance". The main features are interactivity,
authentic consultations, research into support by public opinion, and a simplified
administrative practice for everyone.

In this connection the entry into force of the regulation on access to documents, which
implements Article 255 of the Treaty of Amsterdam, represents a major challenge for
the Commission and requires a rapid and effective response in order to make citizens
aware of their rights.

Interinstitutional co-ordination will be reinforced by the involvement of the Directors-
General of the departments concerned (DG PRESS for the Commission and DG III
for the European Parliament, the relevant services of the Council and of the other
Institutions).

Publications

Publications offering basic information on the Union form a major activity. In future
there must be an effort to produce all publications in a co-ordinated presentation and
thereby to develop a common Interinstitutional presentation. Pragmatic co-operation
between the institutions could thus begin.

Current progress has removed the distinction between traditional and electronic
publications; the production processes are now the same for both. The Publications
introduce arrangements for "print on request" through a portal dedicated
Office will
to the publications of all institutions, organs and agencies. This means that NGOs,
national civil services, info-points, relays, representations and the general public can
download the publications of their choice and print them out or order any quantity for
delivery to the address of their choice.

In future, co-operation between Member States may take on a new dimension with the
services to citizens that are being developed (e-Europe, the IDA programme, etc.).

4

Europe Direct, Eurojus, Signpost Service

There are now three services providing replies to questions raised by citizens.

Europe Direct

Europe Direct helps citizens to find out about and exercise their rights and to identify
all of the opportunities offered by the European Union. For example Community
programmes that can help to implement projects. It was launched in response to the
wish of the national authorities that the European Commission should be closer and

26

more accessible to citizens and businesses, a wish which was confirmed by the
Cardiff European Council in 1998.

Europe Direct started off as a simple e-mail service and then had to respond to new
requirements as its power increased, leading to the setting-up of a Europe Direct call
centre, which has been operational since April 2000. The call centre can provide
replies by telephone in 11 languages and is available through a free number, e-mail,
letter or fax. It is run under a service contract and in the first year of operations it
fielded 100 000 questions.

Eurojus

Eurojus supplements Europe Direct and provides free advice and assistance on legal
problems arising from the interpretation or application of Community law. Legal
advisers are accessible through the representations.

Eurojus has a number of advantages:
it provides quick replies to specific legal
questions and it is decentralised, making it close to citizens and giving visibility in
Europe. It is relatively cheap, easy to run and is in line with the practice of most
Member States of providing free legal assistance on points of national law. It meets a
need by offering free assistance with Community law.

Signpost Service

Signpost Service was launched in 1996. It provides a service similar to that of Eurojus
but focuses exclusively on the rights of citizens or businesses in connection with the
internal market. The operation of the service, which was carried out by an external
agency, has just been terminated. In the meantime Europe Direct is standing in for it.

It is important that all tools described in this chapter should be designed and set up to
ensure that they are visible and mesh with each other, so that the general public, their
target audience, can use them easily and effectively.

1. Concerning Europe Direct, the Commission will assess how this new service has
performed during the initial period and make the necessary changes. The Commission
reserves its global assessment of Europe Direct until a thorough analysis of all the
information available has been made and the value-added of the service has been
confirmed.

2. Concerning Eurojus the Commission is currently re-examining the system. It must
be considered whether this type of legal advice is properly speaking a task for the
Institutions or it would be better handled by national entities in the Member States.

3. Concerning the Signpost Service, a new call for tenders is being prepared.

27

5.

TV and Radio Broadcasts and Training for journalists

For obvious reasons, one of the priorities of the European institutions is to develop the
delivery of information for citizens through audio-visual media.

A major budgetary allocation has been made for this objective. The definition of a
new policy is an important priority but, by reason of its complexity, the wide range of
tools to be employed, and its various implications and side-effects, the planning and
implementation of such a policy is a long-term project with a lengthy period for
bringing it to fruition. The various factors indicated are therefore of a transitional
nature.

They concern both central and decentralised levels.

Decentralised actions

Pilot tests in decentralised coproduction for TV and radio (operated jointly by the
external offices and representations) are to be carried out during 2001. An assessment
of those tests will enable their future framework to be refined. This action will receive
extra money, enabling it to participate more effectively in collaborative projects with
national and regional media.

Central actions

•

In parallel with the decentralised operations, central actions are being carried out
within the framework of priority information actions (PRINCE), which are
indicative of the Commission and the European Parliament's wish to collaborate.
The actions will be carried out with multinational audio-visual media (radio and
TV).

• EuroNews

Co-operation with EuroNews to produce various information programmes has just
reached a crucial phase now that the production contract has been running for three
years. Following an evaluation of the content and impact of the programmes co-
produced by Parliament and the Commission, it is proposed to update and specify
areas of future co-operation over a new three-year period.

Co-operation will no longer be based on a grant, but on a proper co-production
contract. Funds allotted to broadcasting will gradually diminish and those allocated to
production will increase (more extensive broadcasting obligation, more news and
fewer magazines), as will the quality of all programmes (better image quality, more
varied editorial content). The Commission's overall financial contribution will be
increasingly degressive. Themes will be identified on a tripartite basis (European
Parliament Commission, EuroNews), while retaining the channel's editorial freedom.

Europe by Satellite (EBS)

EBS is the television news instrument of the EU institutions.

EBS offers a particularly important
the
Institutions' work (40% of all broadcasts). It also shows news summaries four times a

service: basically,

live coverage of

28

day at fixed times (20% of broadcasts). The remaining time is taken up by thematic
picture libraries illustrating current affairs topics (15% of broadcasts) and by
programmes made by partner channels.

The Commission is determined to maintain close, ongoing inter-institutional editorial
co-operation. This is all the more important because the policy of aligning the
editorial line as closely as possible with new developments entails a high frequency of
broadcasts, reflecting the rapid pace of events. Inter-institutional co-operation will be
strengthened by the addition of a higher co-ordination body at the level of the
Directors-General of the relevant departments in each institution, as in the case of
EUROPA.

Efforts will be made in future to follow up files comprising topical issues or focusing
on successive presidencies. Specific technical assistance will be provided on a priority
basis to journalists from the applicant countries. Interactive press conferences will be
organised, involving the Commissioners in particular, with journalists based outside
the headquarters of the Institutions. Since June 1999, Europa has provided a link to
the EUROPARL site, and EBS pages have already been set up. EBS's presence on
EUROPA is to be reinforced and there are plans to develop its contribution to the
Virtual Press Office, a Commission site for journalists.

Training aid for journalists

For many years the Commission has contributed to journalists' training as a matter of
policy. Its involvement focuses not on their general training, but on a specialism
which has not always been given the importance it deserves in journalism courses.
Recipients, which have been awarded varying amounts for a range of projects, include
the European Journalism Centre (Maastricht), l'Association pour la formation au
journalisme européen (Bordeaux), la Fondation journalisme en Europe (Paris) and the
European Journalists' Association.

For the future, the Commission is keeping an open mind and is willing to discuss
further changes to current arrangements with the institutions and the Member States.
The Commission does not want a subject which should be an integral part of general
training to be enclosed within a specialism on a long-term basis. At the same time,
however, it is aware that the sheer complexity and range of EU affairs means that they
cannot be covered without a solid framework of advance preparation.

The ongoing co-operation between Commission and European Parliament offices in
training journalists in European issues (for example in Portugal) is also worth
mentioning.

29

6.

Central Library7 and Network of Documentation Centres

Because of their natural visibility and the public interest they attract, libraries can be
regarded as the embodiment of their parent institution.

Accordingly, members of the Inter-Institutional Group on Information (IGI) have
recommended that the Commission and Parliament develop co-operation within the
framework of a virtual Interinstitutional library.

A feasibility study is to be carried out into the real options associated with the setting-
up of such a project.

It should be noted that the Commission's central library has traditionally worked
closely with the libraries of the other European institutions, and it would like to build
on this collaboration by further strengthening co-operation.

It is also worth mentioning at this point that a network of European Documentation
Centres (EDC) has been established over the last thirty years. The network comprises
more than 500 centres, including a number of "specialist" units both within and
outside the Union, which have concluded an agreement with the Commission on the
provision of documentation and training.

The EDC are key information points, mainly in universities and institutes of higher
education. Their task is twofold: to help academics and the general public to access
information sources and to provide information in conjunction with other centres and
networks.

7.

Visits

In their continuous efforts to establish proximity between citizens and the Institutions,
the European Parliament and the Commission have always pursued a policy of
openness in respect of the general public. This is a particular priority for the
Parliament, whose infrastructure allows for the reception of 300.000 such visitors in
2000 at its installations in Strasbourg and Brussels. The Commission’s Visits Service
devotes most of its human and financial resources to the
on the other hand
organisation of priority visits of senior groups of information multipliers and opinion
formers from Member States, whose information visit may last up to two days. Such
notably
organised
priority
parliamentarians, journalists, representatives of organised civil society, and academia,
are organised in close co-operation with Representations in Member States. Visits are
also organised for targeted audiences from the candidate counties.

information

audiences,

targeted

visits

are

for

Further to the Presidency Conclusions of the Helsinki European Council,
the
competent services of the European Parliament and the Commission have drawn up a
preliminary report (June 2000) outlining the basis for co-operation in the field of

7 The Central Library acquires, catalogues, financially manages and puts at the disposal of the civil
servants of all of the European Institutions and the interested public, numerous collections of works
and periodicals on the integration of the European Union and its policies since 1958. It also manages
all of the collections of Directorates General and Services of the Commission as well as daily
newspapers delivered to the Commission and specifically to the Press Service. It is possible to consult
its complete catalogue on line, in EUROPA.

30

visits, seminars and public events. Although it also concluded that separate services
for the organisation and reception of information visits should be retained, closer co-
operation is foreseen in the context of the future events centre. This centre, located in
the heart of the European Quarter of Brussels, should, involving the widest possible
range of interest groups, become a focal point for a wider debate on Europe

8.

Evaluation

The new framework for communication and information and the different instruments
the
described in this communication will only achieve their
effectiveness and relevance of the work carried out is subject to permanent evaluation.
The information obtained will also enable a solid framework to be created for
decisions on the direction that work should take in future.

full potential

if

The reason why evaluation and monitoring are so important
the inter-
institutional information working group is required to make an overall assessment
each year when preparing the programme for the year ahead. It is precisely the quality
of this evaluation and monitoring which enables the working group to draw the right
conclusions and to amend, retain, withdraw, reorientate or reinforce the meaning and
nature of the messages and information which it conveys.

is that

The Commission has several tools at its disposal for assessing the debate on European
issues in the Member States. Whether these tools can also be used to measure the
impact of Union information and communication activities is an open question which
must be addressed within the new framework.

statistics on events,

The level of activity can be measured in simple terms: amounts and types of
expenditure,
encountered, material
contacts,
disseminated, audience counts, etc. While these provide a vital starting point, they are
not in themselves enough. Impact must also be assessed in qualitative terms: whether
targets have been met, what the public's perception is and whether it is satisfied.

individuals

In methodological terms, the Commission does not have a great deal of experience in
evaluating the impact of its information campaigns, but it remains open to suggestions
or advice from professionals in the field.

Tools can largely be divided into two categories: general and specific. If properly
interpreted, general
the public
debate/attitudes, whereas specific tools relate to a particular theme of information
activity. The first group includes general opinion polls and various press/media
reviews, including public hearings and discussions in dedicated forums.

tools can be said to provide an image of

The second group is based on feed-back received from users or target groups; such
the information activity
important clues as to whether
feed-back may reveal
corresponds to the objective, what its effects beyond the original target group are and
whether the approach needs to be adjusted or changed.

31

General tools – Eurobarometer, Press reviews, public hearings

Of the general tools, the Eurobarometer (EB) has existed for thirty years. It provides
regular snapshots of public opinion: attitudes towards the EU and its main policies,
in the Institutions, political priorities and time frames,
awareness of and trust
preferred sources of information. These data are used to prepare and evaluate
information actions with a view to calibrating campaigns and as general information
for the public. Numerous reports are published each year which are widely quoted
and commented on in the media and stimulate public debate in Europe. In the near
future the Commission intends to develop similar studies in the candidate countries.
Qualitative surveys and "flash" studies, both of which may be highly detailed, are
carried out on the general public or on specific target groups (SMEs, farmers,
consumers, etc.). Around 50 studies are undertaken each year which produce a very
rich body of information which must be properly exploited and its use evaluated.

Press and media reviews come under the same category of tools and the reasoning
outlined above may also apply to them. The Commission attaches a great deal of
importance to observing the impact of the various Institutions' actions and of
intervention in all its forms by governments and politicians, especially Members of
Parliament, and the impact of current developments on society in general.

The Commission therefore devotes considerable resources to this area: two press
reviews a day, management of the database, four reviews of agency reports a day.
There is scope for rationalisation (merging the different institutions existing press
cuttings and reviews activities). Improvements, on the other hand, would be more
difficult (for example, extending coverage to regional and specialised press; wider
dissemination of the review and the cuttings themselves), since any strategy needs to
reconcile several competing considerations, such as: copyright, quality (in the case of
outsourcing), cost and available budget. One avenue that could be explored would be
distributing the press reviews to the networks and relays in exchange for a
contribution on their part to cover the regional and specialised press.

Specific tools – user feed-back

Information from users or groups of the population who have been the target of
specific information or communication actions offers a more precise picture of how
the efforts of the institutions are received, albeit mostly on a very limited scale. The
different activities mentioned in chapter 2 of this communication reach hundreds of
thousands of users a day (1.5 million documents a day consulted on Europa; 100 000
questions to Europe Direct last year). Each day these systems handle a mass of
information that will need to be analysed more systematically in the future and
exploited in the evaluation exercise.

The Europe Direct service handles enquiries and questions directly from individuals.
Statistics on themes and issues covered can indicate shortcomings in our general
information priorities and relate directly to the concerns of the citizen. Likewise the
EuroJus system of free legal advice to individuals has highlighted areas, particularly
in the area of free movement of persons and the right of establishment, where more
information was needed.

32

is also a source of information on how the
In a new development the Internet
institutions match the public demand for information. EUROPA and the national
home-pages run by Representations receive reactions and requests from the public in
basically two different ways: through the direct mail-box services where users can ask
questions, comment or order publications and other materials; and through the
statistics of the most visited pages on the sites. It is possible – and necessary – to
adjust the offer of information to these indications from the public.

Concerning in particular the networks a new Permanent Monitoring System (PMS)
has just completed its experimental phase and has gone into operation. It represents a
mixture of the general and specific approaches: it permits a monitoring of all the
individual points and of the network as such from the point of view of utilisation,
public contact and activity levels. At the same time it allows identification of element
of user feed-back, such as frequently asked questions, user interest by thematic
groups, by gender, age etc. Its future operation will be monitored more closely, with
particular attention to the prospect of extending it to cover other activities.

Public hearings, in particular if they are well organised and prepared, may offer
additional insight into public perception of and reaction to information from the
institutions. They also allow for a dialogue proper between the information providers
(institutions, Member States)and the information recipients and may thus give rise to
fruitful exchanges on communication strategies and priorities. Through hearings and
public debates it is furthermore possible to monitor the development over time in
public knowledge of and opinion on major questions, e.g. enlargement. It is difficult
to equate this directly with a measure of impact of the information policies of the
Union since a large number of other factors are present, but the long-term trend on
knowledge (the feeling of being informed) could indicate whether more (or indeed
less) information is needed on a particular issue. Public hearings could in this manner
be a useful supplement to Eurobarometer and press reviews; all sources could be
exploited further if resources were available for analysis of the vast data.

33

LEGISLATIVE FINANCIAL STATEMENT

Policy area(s): MEDIA AND COMMUNICATION

Activit(y/ies): 01-02-20-21-22

TITLE OF ACTION: COMMUNICATION ON A NEW FRAMEWORK FOR THE INFORMATION AND
COMMUNICATION POLICY OF THE EUROPEAN UNION

1.

BUDGET LINE(S) + HEADING(S)

B3-300; B3-300A; B3-301; B3301A; B3-303; B3-303A; B3-306; B3-306A;
A0-1112; A0-4200; A0-421; Title 7

2.

2.1.

OVERALL FIGURES

Total allocation for action (Part B):
over the entire period of application

2.2

Period of application:

2002 and subsequent years

€

432.717 million for commitment

2.3

Overall multiannual estimate of expenditure:

(a) Schedule of commitment appropriations/payment appropriations (financial
intervention) (see point 6.1.1)

€

(

million to three decimal places)

Commitments

2002*
94.310

2003
90.894

2004
83.438

2005
72.096

2006
69.155

Total
409.893

Payments

86.910

83.762

76.891

66.439

63.728

377.730

(b)

Technical and administrative assistance and support expenditure (see
point 6.1.2)
Commitments/
Payments

3.030 4.871

4.928

4.974

5.021

22.824

Sub-total a+b

Commitments

97.340

95.765

88.366

77.070

74.176

432.717

Payments

89.940

88.633

81.819

71.413

68.749

400.554

(c) Overall financial impact of human resources and other administrative expenditure
(excluding salary costs)

*

PDB 2002.

34

Commitments/
Payments

TOTAL a+b+c

Commitments

Payments

33.940

35.486

36.196

36.919

37.658

180.199

131.280

131.251

124.562

113.989

111.834

612.916

123.880

124.119

118.015

108.332

106.407

580.753

2.4

Compatibility with financial programming and financial perspective
(cid:1)

Proposal is compatible with existing financial programming.

(cid:1)

(cid:1)

Proposal will entail reprogramming of the relevant heading in the
financial perspective.

Proposal may require
Interinstitutional Agreement.

application of

the

provisions of

the

2.5

Financial impact on revenue

X

Proposal has no financial
regarding implementation of a measure)

implications (involves technical aspects

3.

BUDGET CHARACTERISTICS

Type of expenditure

New

EFTA
contribution

Contributions
from
applicant
countries

Heading in
financial
perspective

Non-comp

Diff

NO

NO

NO

No 3

4.

LEGAL BASIS

Tasks deriving from the Commission's institutional prerogatives

5.

5.1

DESCRIPTION AND GROUNDS

Need for Community intervention

5.1.1 Objectives pursued

This communication is concerned with developing grassroots information for
the European citizen and improving institutional cooperation in order to give the
general public a common perception of the institutions.
These overall objectives will be pursued principally by greater decentralisation
of general information operations and by increased deployment of the
Commission's relays and networks.

35

5.1.2 Measures taken in connection with ex ante evaluation

The communication provides guidelines for which the implementing
arrangements have, for the most part, still to be spelled out. The measures
relating to ex ante evaluation will depend on the nature and implications of
these arrangements.

5.1.3 Measures taken following ex post evaluation

What is described in the communication is a new strategic approach to
information.

5.2

Actions envisaged and budget intervention arrangements

The budget impact of this communication mainly concerns Chapter B3-3,
both for operational lines and for technical and administrative expenditure
lines.
The actions envisaged are essentially general information measures,
information relays, communication measures and priority information
programmes (Prince).

5.3

Methods of implementation

Implementation mainly involves the following activities:

GENERAL INFORMATION MEASURES

– Qualitative improvement

in the editorial

line of written and electronic

publications

– Reinforcement of feed-back tools for information policy

– Decentralised information measures for the general public via representation

offices on priority subjects

– Evaluation report on the impact of the combined action of the various
information resources deployed under the new information policy (support
expenditure).

RELAYS

– The importance attached to information close to the citizen is reflected in the

essential development of networks and relays.

The measures envisaged are:
Creation of an additional national centre every two years (2003-2005)
Establishment of an additional regional centre every year
Creation of additional new Carrefours and InfoPoint Europe (IPE) each year.
Given the geographical area to be covered and the population density,
Commission departments put the minimum number of relays required at 476.
Since Community financing of IPE and carrefours involves an all-in amount
of
Reinforcement of decentralised and general coordination meetings

20 000 per relay, this will mean an eventual total of

9 520 000 a year.

€

€

36

Intensification of work of relays

GENERAL COMMUNICATION MEASURES

The role of offices in decentralised information and communication is
enhanced.
Additional resources are required to develop electronic publications, direct
communication measures, seminars, conferences, etc.
The changes in the missions of the representations will mean calling on the
services of communication specialists. The resources available must be
adjusted accordingly. (ATA estimated cost: 23 x
The Eurojus consultants service would cost more.

45 000)

€

PRIORITY INFORMATION OPERATIONS

The PRINCE information activities covered by this communication relate to

enlargement

the future of the Union

the area of freedom security and justice and the Charter of Fundamental
Rights

–

–

–

–

the euro

– European Union action in the world

in implementing the PRINCE proposal will
The actual expenditure inherent
depend on the decisions/guidelines already adopted by the Commission or to be
adopted in future.

The resources required for the deployment of these information operations will
be evaluated in the light of the specific measures that are adopted in due course.

6.

6.1

FINANCIAL IMPACT

Total financial impact on Part B (over the entire programming period)

The additional requirements flowing from this communication will, for the
most part, be covered by redeployment of resources within Title B3-3
(Information and communication).
The figures below are the best estimates currently available of the additional
appropriations required. They may be reviewed in the Commission's Annual
Policy Strategy procedure.

€

6.1.1 Financial intervention

commitments (in

million to three decimal places)

Breakdown

B3-300 General information

2002
20.440

2003
22.752

2004
23.178

2005
23.607

2006
24.036

Total

114.013

operations

37

B3-301 Relays

14.340

16.317

16.640

17.163

17.486

B3-303 General communication

14.830

16.625

16.920

17.226

17.533

81.946

83.134

operations

B3-306 Priority measures

44.700

35.200

26.700

14.100

10.100

130.800

TOTAL 94.310

90.894

83.438

72.096

69.155

409.893

6.1.2 Technical and administrative assistance (ATA), support expenditure (DDA) and

IT expenditure (commitment appropriations)

2002

2003

2004

2005

2006

Total

1) Technical and administrative
assistance (ATA):
a) Technical assistance offices
(BAT)
b) Other technical and
administrative assistance:

- intra-muros
B3-300A

B3-303A

- extra-muros:

B3-301A

B3-303A
Communication specialists
€
23 x 45.000
Eurojus
€
600.000

B3-306A
Information specialists
Priority subjects

0.200

0.210

0.220

0.230

0.240

1.170

1.205

1.241

1.266

1.291

0.220

0.231

0.242

0.253

0.265

1.035

1.035

1.035

1.035

0.600

0.600

0.600

0.600

1.300

1.200

1.200

1.200

1.200

Sub-total 1

2.890

4.481

4.538

4.584

4.631

21.124

2) Support expenditure (DDA):

a) Studies (evaluation)
B3-300A
B3-301A
b) Meetings of experts

c) Information and publications

0.140

0.250
0.140

0.250
0.140

0.250
0.140

0.250
0.140

Sub-total 2

0.140

0.390

0.390

0.390

0.390

1.700

TOTAL 3.030

4.871

4.928

4.974

5.021

22.824

38

B3-300A

B3-301A

B3-303A

B3-306A

BA lines concerned (point 1 + 2)

0.200

0.460

0.470

0.480

0.490

0.360

0.371

0.382

0.393

0.405

2.100

1.911

1.170

2.840

2.876

2.901

2.926

12.713

1.300

1.200

1.200

1.200

1.200

6.100

TOTAL 3.030

4.871

4.928

4.974

5.021

22.824

39

6.2.

Calculation of costs by measure envisaged in Part B (over the entire
programming period)

commitments (in

million to three decimal places)

€

Breakdown

Type
of outputs
(projects,
files)
1

Number of
outputs

Average unit
costs

2

3

Total cost

2003

4=(2X3)

3
3

2
8
164
192
49
3

0.900
0.350

0.255
0.546
0.020
0.020
0.010
0.105

B3-300
General information operations
-Written and electronic publications
- Eurobarometer opinion polls
Other polls
- Decentralised measures for the
general public
B3-300A
- ATA and support expenditure

B3-301
Relays
- Regional centres
- National centres
- Rural carrefours
- Info Point (IPE)
- Decentralised meetings
- General meetings
- Development of work of relays

B3-301A
- ATA and support expenditure

B3-303
Communication
-Decentralised measures in offices
-Measures at headquarters

B3-303A
-ATA and support expenditure

B3306
Priority information measures
-IGC 2004
-European Union action in the world
- JHA
- Enlargement
- Euro

B3-306 A
ATA and support expenditure

TOTAL COST

40

15.500
2.700
1.050
3.502

0.460

0.510
4.365
3.280
3.840
0.490
0.315
3.517

0.371

16.625

2.840

35.200

1.200

95.765

7.

IMPACT ON STAFF AND ADMINISTRATIVE EXPENDITURE (1)

7.1.

Impact on human resources

For 2002 DG PRESS is not requesting any additional staff in connection with
this communication.
In the course of 2002 DG PRESS intends to begin devolved operations in
compliance with the new guidelines set out in the communication with the
staff which it will be allocated in 2002 as part of the Commission's annual
allocation of staff.
For subsequent years, however, the human resources requirements will be
assessed in late 2001-early 2002 in the light of resources available and
requirements identified so that any requests for additional staff required can be
included in the APS 2003.
The rotation system in the Representations needs to be reactivated. To this
end, and to make it effective and compatible with the constraints of managing
the establishment plan, DG PRESS, in agreement with DG BUDG and
DG ADMIN, will work out procedures for the reinsertion of Representation
staff at the end of the posting to the Representation.

7.2

Overall financial impact of human resources

Type of human resources

€

Amount

Method of calculation

Officials

Other human resources
A0-1112 - Local staff

p.m.

p.m.

Total

7.3

Other administrative expenditure deriving from the action

Budget line
(number and heading)

€

Amount

Method of calculation

Overall allocation (Title A7)
A0701 – Missions
A07030 – Meetings
A07031 – Compulsory committees
A07032 – Non-compulsory committees
A07040 – Conferences
A0705 – Studies and consultations
A706 - Training
Other expenditure - Part A
A0-4200 - Buildings, equipment, operating
costs and information technology
A0-421 - Operation of radio and television
studios and audiovisual equipment

(*)

300.000
50.000

50.000
20.000
230.000

200.000
Total 850.000

The amounts are total expenditure for 12 months.

41

300.000

* Missions (A0-7010)
Missions, to meet new needs generated by decentralised communication and
information activities, of Representation officials to headquarters, Representation
officials within Member States and headquarters officials to Representations for
internal controls.
* Meetings (A0-7030)
Amount corresponding to foreseeable estimate of number of meetings in connection
with new activities (5 additional meetings).
* Studies (A0-7050)
50.000
Studies and evaluations relating to all DG PRESS activities in connection with this
communication.
* Training (A0-706)
Specific training programmes will have to be organised on information, management
and control.
*Offices in the Community: buildings, equipment, operating costs (A-4200)

20.000

50.000

This amount is an overall estimate of requirements that could arise to support the
increase in the activities of the Representations. This figure will be validated in the
course of the normal budgetary procedure.
*Operation of radio and television studios and audiovisual equipment

230.000

200.000

In order to broadcast Community information more widely across the Union, it is
planned to increase the number of sites, in particular by providing the information
relays with the equipment necessary for the reception and recording of the
Commission's satellite broadcasts via the EbS (Europe by Satellite) information
agency.
It is also planned to develop the EbS site on both the Intranet and the Internet.
The estimated cost of these two operations is
validated when the draft budget is being prepared.
I.
II.
III.

850.000
Annual total (7.2 + 7.3)
Duration of action
4
Total cost of action (I x II) 3.400.000

years (starting in 2003)
€

200 000. This figure will have to be

€

€

8.

8.1

FOLLOW-UP AND EVALUATION

Follow-up arrangements

The internal reporting systems will be strengthened to accommodate the
new
and
information policy:
dimensions
interinstitutional cooperation.

decentralisation

of

8.2

Arrangements and schedule for evaluation

Suitable tools will have to be deployed so that information operations are
systematically evaluated at least once a year.

9.

ANTI-FRAUD MEASURES

All contracts, agreements and legal commitments between the Commission and
beneficiaries provide for the Commission or the Court of Auditors to conduct

42

on-the-spot controls of the direct recipient of the Community grant (or of the
second-degree recipient where an activity is managed on a decentralised basis by the
Commission), and for the production of all supporting documents for expenditure
under contracts, agreements and legal commitments to be demanded during the five
years after the end of the contract period. Grant recipients are required to provide
financial reports and statements, which are analysed in terms of content and
eligibility of expenditure by reference to the purpose of the Community funding and
with due respect to contractual obligations and the principles of economy and sound
management.

43