Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on an information and communication strategy for the European Union
Date: 2002-07-02
Institutions: European Commission
Subjects: European Union, action programme, communications policy, information policy, information processing, interinstitutional cooperation (EU), public awareness campaign

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 2.10.2002
COM(2002) 350 final/2

CORRIGENDUM
La foot note n° 9 doit se lire
SEC 737/3 du 10 mai 2000.
Concerne uniquement les versions :FR-DE-EN.

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

ON
AN INFORMATION AND COMMUNICATION STRATEGY FOR THE EUROPEAN
UNION

TABLE OF CONTENTS

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE
EUROPEAN PARLIAMENT, THE ECONOMIC AND SOCIAL COMMITTEE
AND THE COMMITTEE OF THE REGIONS on an information and
communication strategy for the european union ...................................................................1

INTRODUCTION ......................................................................................................................4

I. The democratic challenge ........................................................................................................6

1.

1.1.

1.2.

2.

2.1.

2.2.

3.

3.1.

3.2.

A complex state of play ................................................................................................6

The European Union: a mixed picture..........................................................................6

Public expectations .......................................................................................................6

A new form of governance ... a priority........................................................................7

The facts acknowledged................................................................................................7

Shared responsibility.....................................................................................................7

The need for a fresh approach.......................................................................................8

At institutional level .....................................................................................................8

As regards information and communication.................................................................8

II. A coherent and comprehensive response .............................................................................10

1.

1.1.

1.2.

2.

A clear commitment to objectives ..............................................................................10

A genuine dialogue ... .................................................................................................10

… based on a two-tier information strategy ...............................................................10

Greater coherence .......................................................................................................11

2.1.

A common reference framework ................................................................................11

2.1.1. A central thread...........................................................................................................11

2.1.2.

Essential values...........................................................................................................12

2.2.

Topics and messages...................................................................................................13

2.2.1.

Enlargement ................................................................................................................14

2.2.2.

The future of the European Union ..............................................................................14

2.2.3.

The area of freedom, security and justice ...................................................................15

2.2.4.

The role of Europe in the world..................................................................................15

2

2.3.

Audiences....................................................................................................................16

3.

3.1.

3.2.

3.3.

An overall process ......................................................................................................17

A more proactive approach.........................................................................................17

Confident leadership ...................................................................................................17

The need for synergy ..................................................................................................18

III. Gradual implementation tailored to needs ..........................................................................21

1.

1.1

1.2

2.

2.1

2.2

3.

Forms of interinstitutional cooperation ......................................................................21

The IGI........................................................................................................................21

Developing messages..................................................................................................22

A new decentralised partnership.................................................................................23

Effective decentralisation ...........................................................................................23

Sharing responsibility better .......................................................................................24

Collaboration as close to the people as possible.........................................................25

CONCLUSION.........................................................................................................................27

ANNEX 1  EXAMPLE OF THE PREPARATION OF A MESSAGE CONCERNING
ENLARGEMENT FROM THE STANDPOINT OF THE EUROPEAN UNION ..................28

EXAMPLE OF THE PREPARATION OF A MESSAGE CONCERNING
ENLARGEMENT FROM THE STANDPOINT OF THE CANDIDATE
COUNTRIES ............................................................................................................................29

ANNEX 2 ORGANISATION PLAN.......................................................................................30

ANNEX 3 ACTION PLAN ......................................................................................................31

ANNEX 4 LEGISLATIVE FINANCIAL STATEMENT .......................................................33

3

INTRODUCTION

In  its  communication  on  a  new  framework  for  cooperation  on  activities  concerning
the information and communication policy of the European Union,1 the Commission
called on the other institutions and bodies of the Union and on the Member States to
join in its efforts to overhaul the Union’s information and communication policy.

The  purpose  of  the  communication  was  to  propose  a  new  framework  for
interinstitutional  cooperation  on 
implementation  of  an
information and communication policy for the European Union.

the  formulation  and 

The proposal was drawn up in response to a request by the European Council to the
European Parliament, the Council and the Commission to pool their efforts to provide
coordinated  general  information  about  the  Union  and  to  optimise  the  use  of
resources.2  The  Commission  was  also  invited  to  “study  the  general  question  of  the
Union's  information  policy,  including  improving  coordination  with  its  information
offices in the Member States and links with national information offices". It was also
formulated  against  the  background  of  Parliament's  reflections,  with  particular
reference  to  the  development  of  its  partnership  with  the  Commission  on  the
information campaign: The euro, a currency for Europe.3

In the wake of its communication, the Commission called on the other institutions and
bodies  of  the  European  Union  and  the  Member  States  to  debate  its  proposal.  It
welcomes its endorsement by the European Parliament4 and its approval by successive
Presidencies of the Council (the Belgian Presidency in the second half of 2001 and the
Spanish in the first half  of  2002).  For the first time, the Council  is now recognising
the important role of the Member States in the dissemination of information and the
promotion of communication on European affairs. The Commission fully appreciates
the  significance  of  this  development,  which  opens  up  new  possibilities  for
complementary  action  by  the  institutions  and  the  Member  States,  something  the
Commission  sees  as  entirely  appropriate in  view  of  the  challenges  facing  the  Union
today.

The  time  is  now  right  for  a  coherent  and  comprehensive  information  and
communication policy for the European Union which will improve public perceptions
of the Union and of its role. However, it is self-evident that this strategy will have to
be  developed  in  a  progressive  and  empirical  manner  and  that  it  will  not  in  itself  be
sufficient to resolve the issue of good governance or the “democratic challenge”. But
it can  make a  contribution by  creating  a  public  forum  for  the  European  debate.  The
Member States are invited to take part.

1  COM(2001)354 final.
2  Helsinki, December 1999.
3  Resolution  of  14 March 2001  on 

the 

information  and  communication  strategy  of 

the

European Union.

4  Resolution  of  13  March  2002  on  a  new  framework  for  co-operation  on  activities  concerning  the

information and communication policy of the European Union.

4

                                                
This strategy does not claim to answer all the institutions’ needs or to cover all their
action in the information and communication sphere. What it does do is complement
their role as interface with the public.

In  particular,  it  does  not  set  out  all  the  information  and  communication  activities
carried out by the Commission's Directorates-General in the specific areas for which
they are responsible. Its function is to complement such activities, to contribute to an
overall dynamic and to ensure consistency.5

It takes account of the institutional and political constraints placed on the Union and
attempts to provide a springboard for developing a joint communication policy for the
institutions that is geared to their individual roles and specific requirements.

5 

It  does  not  cover  the  complementary  information  measures  carried  out  by  the  Commission  in
non-EU countries.

5

                                                
I. The democratic challenge

1. 

A COMPLEX STATE OF PLAY

Just  like  the  Member States,  the  European  Union  is  facing  the  full  force  of  public
disaffection  with  politics.  This  crisis  of  representation  is  even  greater  at  European
level  since  there  is  no  clear  public  perception  of  the  legitimacy  of  the  European
institutions.

The current context of new challenges to the Union does not help, as is evidenced by
recent referenda and elections.

With  the  approach  of  enlargement,  occurring  alongside  the  deliberations  of  the
Convention on the future of the European Union and in a context of suspicion towards
globalisation,  there  is  an  increasing  need  for  the  European  projects  to  be  made
meaningful and visible.

In  the  Laeken  Declaration  the  Heads  of  State  and  Government  recognised  that  the
European  Union  could  not  move  any  further  forward  without  public  support  and
commitment.

1.1.

The European Union: a mixed picture

So the Heads of State and Government basically acknowledged that, if the institutions
were to be brought closer to the public, there would have to be concerted action by the
institutions and the Member States to win it over to the Union's main objectives. But
this on its own will not be enough to fill the information deficit. A large section of the
public  quite  simply  does  not  understand  what  the  European  Union  does:  many  feel
that it should deal more with their day-to-day concerns; others are of the opinion that
it  meddles  too  much  in  the  minutiae  of  matters  that  naturally  fall  within  the
competence  of  the  national  or  regional  authorities,  and  see  Community  action  as  a
threat to their identity.

Nevertheless,  the  majority  generally see the  Union  as  the  expression  of  the  unity  of
this continent of freedom, solidarity and diversity, and many share the conviction that
the time has come for Europe to assume its responsibilities on the world stage.

As the Laeken Declaration stresses, "the image of a democratic and globally engaged
Europe admirably matches citizens' wishes".

1.2.

Public expectations

The  studies  at  the  Union's  disposal6  show  that  public  perception  of  the  challenges
facing the European Union is relatively homogeneous:

6  OPTEM study, May 2002.

6

                                                
– 

– 

– 

– 

closing the economic divide and increasing solidarity (within the Union and
with the world's poorest countries);

globalisation (even though this notion is still somewhat vague);

the protection of the environment (within the Union but also globally) ;

environmental protection (in Europe and world-wide).

But this widely held perception is only one side of the coin; the other is the ignorance,
particularly among young people, not only of what the Union has achieved but also of
how it operates and what its real powers are.

The public is aware that it is poorly informed on Europe. It is only too ready to blame
not only the media and national authorities, but also the European institutions, for the
perceived ignorance or prejudice.

Fighting ignorance and apathy is now a must for the European Union. Remember that
turnout in the European elections fell from 63% in 1979 to 49% in 1999.

2. 

A NEW FORM OF GOVERNANCE ... A PRIORITY

The  ignorance  or  lack  of  understanding  typical  of  the  public's  relationship  with  the
European Union is not inevitable. It is due largely to the complexity of the European
process  but also  to the  absence of an EU  information  and  communication  policy  on
the part of both the European institutions and the Member States.

2.1.

The facts acknowledged

In  its  White  Paper  on  European  governance,7  the  Commission  acknowledged  that  a
genuine  information  and  communication  policy  was  the  main  prerequisite  for  the
development of better governance in Europe.

"The  institutions  should  work  in  a  more  open  manner.  Together  with  the  Member
States, they should actively communicate about what the EU does and the decisions it
takes. They should use language that is accessible and understandable for the general
public. This is of particular importance in order to improve the confidence in complex
institutions."

In the Member States, as at European level, democracy depends on the capacity of the
individual to participate in the public debate. The institutions, with the backing of the
Member States, must not waste any time  in  rising  to  this  challenge, which  will only
increase with enlargement.

2.2.

Shared responsibility

How then can the quality of the European public debate be improved?

7  COM(2001) 428 final.

7

                                                
In  order  to  exist,  the  European  public  space  needs  temporal,  spatial  and  ideological
points  of  reference.  It  also  needs  active  public  involvement.  This  will  mean
developing  all 
interest  groups,
parliamentarians,  etc.)  at  European  level  and  building  on  all  forms  of  cooperation,
whether from journalists, the major media or national institutions.

representation 

forms  of 

(opinion 

leaders, 

This sharing of responsibility between the Union and the Member States must prompt
each  partner  to  develop  a  more  coherent  and  more  confident  information  and
communication policy which will allow Europe and the individual Member States to
rediscover a sense of oneness and of belonging to the same community.

The Union must organise its information policy in such a way as to encompass a more
comprehensive  range  of  subjects,  with 
to
communicate  on  European  affairs  from  a  strictly  national  viewpoint,  the  filtering
effect of which is often reductive.

the  Member States  agreeing  not 

3. 

THE NEED FOR A FRESH APPROACH

The awareness now shared by all European leaders has generated a new political will
to involve the public more in the European decision-making process. The real changes
which the European Union is undergoing now call for a fresh approach.

3.1.

At institutional level

This political will has led to the development of a different method of preparing the
ground  for  the  revision  of  the  Treaties  required  for  enlargement:  the  Convention  on
the future of the European Union, which was set up following the Laeken Declaration
and is now pursuing its deliberations in a totally transparent fashion.

It has also prompted the Heads of State and Government to seek the involvement of
civil society and as broad a section of the general public as possible in the European
debate.

3.2.

As regards information and communication

However, this momentum can only be sustained on the basis of an informed and more
enlightened debate on Europe.

The  institutions  and  Member States  have  reiterated  their  political  will  to  develop  a
concerted information strategy on the main issues affecting the European Union. This
new joint approach should lead to synergy between the different methods applied by
each partner, with Member State involvement allowing the European Union to speak
with  one  voice  and  also  to  benefit  from  the  hitherto  lacking  yet  crucial  multiplier
effect.

The  scale  of  the  challenge  is  immense,  and  the  means  available  are  limited.  The
Commission is therefore proposing a two-pronged approach that is both realistic and
gradual:

8

– 

– 

giving  the  European  Union  the  capacity  to  formulate  and  disseminate
messages geared to and focused on its priority issues;

establishing  a  voluntary  working  partnership  with  the  Member States
fostering  genuine  synergy  between  their  structures  and  know-how  and  the
activities of the European Union.

9

II. A coherent and comprehensive response

To meet these challenges the European Union must devise a strategy based on a clear
commitment to objectives enabling a set of messages on each topic to be developed as
part of an overall process involving both the institutions and the Member States.

1. 

A CLEAR COMMITMENT TO OBJECTIVES

What  objectives  should  the  European  Union  set  itself  for  the  development  of  an
information and communication strategy?

1.1. 

A genuine dialogue ...

Neutral  factual  information  is  needed  of  course,  but  it  is  not  enough  on  its  own.
Experience  has  shown  that  a  given  item  of  information  will  not  remain  neutral
because  its  presentation  will  constantly  be  reworked  by  the  media,  relays  and  other
opinion multipliers.

Genuine  communication  by  the  European  Union  cannot  be  reduced  to  the  mere
provision of information: it must convey a meaning, facilitate comprehension, set both
action  and  policy  in  a  real  context,  and  prompt  dialogue  within  national  public
opinion so as to enhance the participation of the general public in the great European
debate.

The  objective  of  this  new  strategy  must  therefore  be  to  generate  awareness  and
combat  ignorance  and  apathy  so  as  to  lay  a  firm  foundation  for  the  management  of
public life, a clearly understood form of governance between the European Union and
its  citizens.  The  main  point  is  to  improve  popular  perceptions  of  the  Union  or,  in
short, to boost the general awareness of the European dimension of citizenship.

1.2.  … based on a two-tier information strategy

But it goes without saying that this strategy must reflect the highly specific nature of
the European Union, which cannot be compared to a traditional government.

What this means is that the European Union must develop a genuine teaching function
in relation to its role and tasks. Looking beyond education stricto sensu, which would
merit  specific  study  by  the  Member  States,  the  European  Union  must  take  a  more
didactic stance on its policies in order to meet the needs inherent in better governance.

This didactic stance should be manifested in two basic ways:

– 

first,  in  general  information  aiming  to  boost  awareness  of  the  Union’s
existence  and  legitimacy,  polishing  its  image  and  highlighting  its  role;  this
would  merit  specific  study  by  the  Community  institutions  and  the  Member
States;

10

– 

then,  on  the  basis  of  the  Union’s  major  projects  and  challenges,  which  the
Community  institutions  will  translate  into  priority  information  topics  to  be
slotted into the Prince programme (Programme of Information for the Citizen
of  Europe),  in  accordance  with  the  new  interinstitutional  framework  that  is
now operational.

To improve its communication capacity on this basis, the European Union must begin
by gradually developing the means of controlling its image.

The European debate must be made more dynamic so that the general public can more
easily  relate  the  information  and  explanations  it  receives  to  the  European  Union’s
projects.

Objectives:

To improve perceptions of the European Union, its institutions and their legitimacy by
enhancing familiarity with and comprehension of its tasks, structure and achievements
and establishing dialogue with the general public.

2. 

GREATER COHERENCE

Information and communication cannot be regarded as a sort of secondary appendage
to or supplementary constraint on the European Union’s activities.

The development of an information and communication strategy matching real needs
is a precondition for the success of the European Union’s policies and initiatives.

But this will mean the European institutions undergoing a genuine cultural revolution
at every level of responsibility.

The  acquisition  of  a  new  communication  culture  will  depend  on  a  coherent  and
methodical reconstruction of the European Union’s image.

This  first  entails  demonstrating  a  genuine  capacity  to  elaborate  our  own  funds  of
messages.

2.1. 

A common reference framework

This capacity requires the establishment of a common reference framework for all the
institutions to  serve  as  the  basis  for  building  up  a  fund  of  messages  for  each  of  the
European Union’s major policies.

2.1.1.  A central thread

To enable the European Union to acquire control of its own image and, by extension,
of  its  messages,  it  must  devise  a  sort  of  central  pattern,  a  thread  woven  round
homogeneous  general  concepts  profiling  clearly  the  Union’s  raison  d'être  and
providing the institutions and the Member States with a reference framework within
which to transmit coherent messages.

11

this 

really  means 

into  simple  and  non-controversial
What 
communication  terms  the  Union’s  main  objectives  as  stemming  from  the  Treaty  on
European Union (Articles 2 and 6).

translating 

is 

This central thread – a sort of constant central reference for all information activities –
must both take account of the range of different conceptions of the European venture
and  at  the  same  time  meet  the  needs  of  the  institutions,  the  Member  States  and  the
general public.

It  must  be  capable  of  being  expressed  in  simple  terms,  acceptable  to  all  the
institutions,  highlighting  the  specific  nature  and  reality  of  authentic  European  value
added.

Initial studies suggest that the central thread for European Union action should focus
on the following concepts:

– 

– 

– 

– 

the virtue of exchange (liberties, diversity, humanism);

value added in terms of efficiency and solidarity;

the concept of protection;

the role of Europe in the world.

This  central  thread  would  mean  a  higher  public  profile  could  be  given  to  certain
fundamental features of the European Union’s raison d'être and action.

The central thread could be woven from the following elements:

(cid:1) 

(cid:1) 

the  European  Union  is  a  pledge  of  greater  liberty,  prosperity  and  security  for
Europeans;

the  European  Union  promotes  a  model  of  society  inspired  by  solidarity  and
dynamism and respecting diversity;

–  the  European  Union  enables  us  to  play  a  world  role  matching  our  values  and

commensurate with our weight.

This  central  thread  should  make  it  possible  to  provide  a  firm  foundation  for  the
language and presentation of the individual messages  for  each of the  areas in which
the European Union has power to act.

2.1.2.  Essential values

Translating  this  central  thread  into  concrete  audible  messages  for  the  citizen  entails
filtering it through the values underlying the European Union’s primary objectives.

In the context of a well-controlled information strategy, these values must always be
implicit in and closely connected to the practical objectives of Community action, and
must correspond to the generally accepted public perceptions of the European Union.
They  will  constitute  the  invisible  communication  substructure  endowing  the

12

presentation of the Union’s policy objectives with a new coherence, also with a view
to elaborating the funds of messages that the European Union needs for the purpose of
self-expression.

Initial studies8 suggest that these values remain virtually unspoken. But they exist, and
they translate a necessary positive perception of European integration. This perception
combines both collective and individual benefits.

Implied basic values for communication:

–  rapprochement and exchange: opportunity(ies);

–  equality and solidarity: prosperity;

–  protection: security.

Like the central thread, these values still need to be tested and then validated by the
institutions as a common reference framework.

2.2. 

Topics and messages

Likewise in the interests  of  coherence,  the  main  topics  the  Commission  proposes  to
develop focus on the European Union’s policy priorities for the years ahead.

In  particular,  they  are  in  line  with  the  four  strategic  objectives  spelled  out  by  the
Commission at the beginning of its term of office and reformulated  each  year on an
interinstitutional  basis  in  the  APS  decision:  promoting  new  forms  of  European
governance; a stable Europe with a stronger voice in the world; a new economic and
social agenda; and a better quality of life for all.

In  agreement  with  its  partners,  the  Commission  had  already  identified  three  priority
information topics:

–  enlargement;

–  the future of the European Union; and

–  the area of freedom, security and justice.

It is now proposing a fourth: the role of the European Union in the world.

Taking  these  priority  information  topics  as  a  starting  point,  the  definition  and
development of the main messages must match the needs and concerns of the general
public.  And  they  must  be  expressed  in  its  language:  effective  communication  must
always be seen in terms of the general public rather than of the institutions.

For the European public has specific demands: preserving peace and security, fighting
unemployment,  combating  organised  crime  and  trafficking,  reducing  poverty,

8  OPTEM study, May 2002.

13

                                                
ensuring equal opportunities and protecting the environment. These concerns must not
be perceived as conflicting with the proposed topics. Quite the reverse. The objective
of communication is to explain the direct correlation between a given policy priority
and the context and quality of the life of each and every individual.

2.2.1.  Enlargement

The approach proposed complements but does not modify the communication strategy
on enlargement adopted by the Commission in May 2000.9

In the light of the results of Eurobarometer (83% of the public feel poorly or not at all
informed), communication on the topic of  enlargement should first make it easier to
grasp  the  actual  timing  (which  countries  when).  And  as  regards  substance,  in  the
Member States it could focus on the following angles:

–  the legitimacy of accession by these countries which are potential members of the

EU (opportunities);

–  the  considerable  efforts  made  by  these  countries  to  adopt  Community  law  and

practice (security);

–  the undeniable value added of enlargement, which will ultimately benefit the entire

Union (prosperity).

The Union’s objectives thus rest implicitly on the values of opportunity, security and
prosperity. The messages to be developed must be such as to express these values (cf.
tables at Annex 1).

2.2.2.  The future of the European Union

Regarding  the  future  of  the  European  Union,  this  is  a  subject  where  we  come  up
against  total  ignorance  about  how  the  European  Union  operates  and  how  it  needs
reforming.

In  this  respect  the  development  of  this  topic  also  matches  the  need  to  provide  a
modicum  of  general  information  and  basic  explanation  about  how  Europe  actually
works.

But  this  topic  also  meets  the  need  of  the  moment  to  explain  the  work  of  the
Convention on the future of the European Union and, in due course, to ensure that the
outcome is properly appreciated.

It should focus on  the content  of the Convention’s  proposal  and  take account  of  the
fact that the need to adapt the modus operandi of the institutions to an enlarged Union
is broadly well-perceived  and  accepted,  even  though  there are some who  fear  that  a
strong central power will emerge, beyond the control of the Member States.

9  SEC 737/3, 10 May 2000.

14

                                                
2.2.3.  The area of freedom, security and justice

Lastly, creating the area of freedom, security and justice, a particularly tangible topic,
could be developed around the following issues:

–  immigration:  isolated  action  by  a  given  Member  State  is  not  sufficient  to  ensure
full  control  of  borders  or  to  combat  international  crime,  whereas  the  European
Union allows a joint response to migration issues;

–  human rights: belonging to the Union implies freedom, democracy and respect for
basic  values;  the  European  area  of  freedom  and  justice  needs  to  be  consolidated
and reinforced;

–  citizenship: the area of freedom, security and justice will finally give full meaning
to  the  concept  of  European  citizenship,  something  which  enhances  but  does  not
replace national citizenship.

2.2.4.  The role of Europe in the world

The topic of  Europe’s  role  in the world  can  be  approached  from  a  variety  of  angles
(good-neighbour policy, sustainable development, humanitarian aid, etc.).

But  the  subject  of  globalisation  constitutes  a  truly  formidable  challenge  for  the
communicators.  It  often  generates  unease  even  though  the  concept  is  sometimes  a
little obscure.

To  allay  the  fears  felt  by  Europeans  regarding  how  they  will  be  affected  by  this
process, attention must be focused on demonstrating that Europe is more effective and
more  competitive  than  they  think  in  coming  to  terms  with  and  regulating
globalisation.

The following communication angles should be explored:

–  the issues on the table in the multilateral trade negotiations;

–  the Union’s determination to be a force for  equilibrium in  the  world  (open  to the

third world, sensitive to sustainable development);

–  the strength of a united Europe speaking with a single voice.

Other subjects could obviously be addressed here as well.

Likewise, in parallel with the first police and military actions in Bosnia, the question
of Europe’s defence also undoubtedly deserves attention.

The  European Union's  good-neighbour  policy  vis-à-vis  the  regions  on  its  borders
constitutes an important dimension of its external policy.

But  the  European  Union  must  do  more  than  just  formulate  clear,  simple  and
instructive messages; it must back up its assertions. If the message to be developed is

15

not  supported  by  positive  practical  examples  that  speak  to  everybody,  it  will  never
strike home.

2.3. 

Audiences

The  European  Union  must  practise  targeted  communication.  Dialogue  with  opinion
multipliers and dialogue with the general public in the Member States do not satisfy
the same demands.

Information  must  therefore  be  provided  at  two  distinct  levels,  using  different
messages and appropriate tools. Certain information must be addressed to those who
are interested and already  reasonably well-informed  whereas other  information must
be  aimed  at  those  who  are  apathetic  and  unfamiliar  with  the  European  Union.  The
need to resist the temptation to be satisfied with maintaining dialogue with the natural
circle of those ‘in the know’ is a real challenge, which the new strategy must help us
to take up.

In addition, information and messages must be geared to local realities, languages and
perceptions  and  to  the  specific  interests  and  concerns  of  the  various  target  groups.
These  groups  should  be  selected  in  accordance  with  the  communication  plans
negotiated with the Member States on each of the priority topics agreed on.

The  target  groups  should  include  not  only  opinion  makers  such  as  political
representatives,  leading  personalities  in  civil  society,  the  media,  the  business  world
and  so  on,  but  also  specific  categories  of  the  general  public  such  as  young  people,
women, families, working people, etc.

Particular  attention  should  be  given  to  young  people  and  the  education  sector  as  a
channel for helping people to learn about the European Union.

For each topic:

–  formulate a strategy and messages geared to a public that is already informed;

–  formulate a strategy and messages geared to the general public.

16

3. 

AN OVERALL PROCESS

If the European Union is to manage its communication activities more effectively, it
will  have  to  ensure  that  its  information  policy  forms  part  of  a  coherent  and
comprehensive strategy which bears the hallmark of true political leadership.

The development of this new strategy and the need to take control of its own image
and  create  its  own  messages  mean  that  the  European  Union  and  its  institutions  will
have to make far-reaching changes in their information and communication policy.

3.1. 

A more proactive approach

The  Union  can  no  longer  afford  to  be  purely  reactive.  If  it  is  to  promote  a  more
informed  debate  on  its  objectives,  it  must  take  a  policy  decision  to  build  into  its
modus operandi the need to seize the initiative on a number of priority issues, timed
in such a way as to reflect a given agenda.

However, it goes without saying that, even acting collectively, the Union institutions
do not have the capacity to engage directly with the man in the street.

So the success of this strategy will depend directly on the degree of support afforded it
by  the  Member  States.  The  multiplier  effect  of  resources,  relay  channels,  expertise,
information services and the main ministries involved in the Member States is crucial
if  the  objectives  set  out  in  this  paper  are  to  be  achieved,  particularly  as  regards
improving the partnership with civil society.

This  process  of  making  each  partner  jointly  responsible  will  require  a  real  political
commitment  at  the  highest  level  from  institutions  and  Member  States  alike.  This
commitment must be both to the procedures and to the common reference framework,
which they should use as long as there has been no joint decision to change it.

Another  problem  is  that  the  European  Union  sadly  lacks  a  "face"  which  ordinary
people  can  relate  to.  Over  and  above  decentralisation  and  organised  relays  and
networks the European Union must also give thought to working with actual opinion
leaders in each Member State who will strive to make Europe a more tangible reality
for ordinary people (both on television and at local level). Obviously, responsibility in
this area lies primarily with the European institutions, but local, regional and national
politicians also have a part to  play.  Business and/or academic circles  should  also  be
called on to contribute.

3.2. 

Confident leadership

(a)  Before funds of European messages can be developed on major issues, an in-depth
analysis  must  be  carried  out  of  public  opinion  in  the  Member  States.  The
European  Commission  has  the  necessary  experience  and  capacity  at  European
level  to  do  this.  Eurobarometer,  and  the  opinion  polls  and  qualitative  studies
which it draws on, enable it to develop this perception on a consistent and regular
basis. It will need to boost its capacity for analysis significantly if it is to be able

17

to  disseminate  adequate  information  not  just  internally  but  also  to  the  other
institutions and, obviously, to all the political players in the Union as well.

However,  this  must  not  exclude  analyses  developed  by  the  Member  States
themselves.  The  Commission  would  like  to  improve  its  knowledge  of  current
public  opinion  and  trends  in  the  Member  States  by  developing  a  more  regular
partnership with the departments in the national information services responsible
for conducting opinion polls in the Member States. This cooperation should make
it  easier  to  meet  the  expectations  and  needs  of  ordinary  Europeans  more
effectively.

The development of this information monitoring capacity — which could take the
form of a web-based network linking all the partners involved — will thus provide
a  framework  in  which  to  formulate  the  messages  needed  for  each  topic  or
information campaign.

(b) The  other  requirement  if  the  comprehensive  character  of  the  process  is  to  be
preserved  will  be  to  tie  all  the  information  activities  into  the  Union's  agenda  in
information  and
order 
communication  process.  Here  too,  responsibility  will  lie  with  the  European
Commission,  whose  power  of  initiative  places  it  at  the  very  heart  of  the
decision-making process.

the  visibility  and 

to  maximise 

topicality  of 

the 

(c)  True leadership will clearly be required to direct and guide the process as a whole
if  genuine  decentralisation  is  to  be  achieved.  The  Commission  must  be  able  to
assume  responsibility  for  ensuring  greater  coordination  both  between  the
its  various
institutions  and  the  Member  States  and, 
Directorates-General.

internally,  between 

If it is to play its role properly, the Commission will need to be able to draw on
regular evaluations of information activities carried out each year by the European
Union  itself  as  well  as  initiatives  taken  by  and  in  the  Member  States.  The
machinery  for  monitoring these evaluations will  have to  be  set  up  jointly  by  the
institutions and could be based on collective result-based targets.

In addition, in the way the Commission has done for the euro campaign right from
the outset, each major campaign will have to be evaluated over the whole of the
period in question.

The  Commission  will  also  attempt  to  draw  up  a  multiannual  information  and
communication  programme  to  ensure  the  necessary  continuity  for  the  main
information campaigns carried out jointly by the institutions and the Member States.
This programme will be submitted to the Interinstitutional Group on Information (IGI)
for political approval.

3.3. 

The need for synergy

Another feature of this strategy is that, although the Commission's Press  DG will be
required  to  play  a  central  role,  this  role  will  be  more  that  of  service  provider  and

18

coordinator in relation to the other Directorates-General, the other institutions and the
Member States than that of all-knowing, all-powerful driving force.

The  task  of  DG Press  is  to  assist  its  partners  under  the  political  authority  of  the
President or the relevant Member of the Commission, in conjunction with the Member
chiefly responsible for the information topic in question.

Obviously,  this  function  of  serving  the  political  authority  also  applies  to  the
Commission representations in the Member States and indeed to all the instruments,
tools  and  resources  available  to  it  whose  use  must  be  maximised  to  ensure  that  the
new strategy succeeds.

(cid:1)  So Eurobarometer will have to adapt to the issues selected. The aim is in no way
to undermine the ongoing analysis of public opinion which this instrument makes
possible but to take on board, within the framework of an annual programme, the
need to acquire an adequate knowledge of public opinion in the Member States on
the  selected  issues  in  order  to  develop  appropriate  messages  which  meet  the
public's expectations.

We also need to assess how it can be extended to the candidate countries in ways
which guarantee maximum reliability and continuity.

(cid:1)  So too the Europa site remains an essential instrument for bringing the institutions
closer to ordinary people and facilitating contact between Europeans. It could also
be geared more to meeting the information requirements of the general public and
facilitating  access  to  information  sources  directly  linked  to  the  selected  priority
issues.

Nor  should  the  interactive  dimension  of  the  strategy  be  forgotten:  genuine
dialogue with the public takes place naturally  through  channels like  the  Internet,
but  also  through  direct  contact  with  the  institutions  via  services  like  Europe
Direct.  This  service  should  be  developed  on  an  interinstitutional  basis,  focusing
primarily  on  the  priority  topics  identified,  but  also  expanding  its  direct-reply
facility on all issues of relevance to the daily life of Europe's citizens.

(cid:1)  Traditional publications also remain essential sources of facts and information for
many Europeans. In the light of the new strategy proposed, appropriate guidelines
should  therefore  be  produced  and  adopted  for  the  publications  policy  of  the
European institutions.

(cid:1)  Lastly, it is clear that the role of radio and television is set to increase. And here
too Europe by Satellite in particular should make it possible for all events directly
linked  to  the  information  campaigns  to  be  covered  in  an  interinstitutional
perspective.

Similarly, the audiovisual communication policy of the Union in general  and the
Commission in particular will have to be reevaluated in the light of this strategy,
given  the  very  limited  options  currently  available  either  centrally  or  in  the
Member States. It is in this field above all that partnership with the Member States
should provide significant leverage for achieving better coverage of the European

19

dimension of public life in the local and national media; promoting co-productions
with national  or  regional channels  should  therefore  be  encouraged.  In  particular,
the training of journalists and editors should remain near the top of the agenda. At
present,  66%  of  Europeans  see  radio  and  television  as  their  main  source  of
information on the European Union.

The Commission calls on each institution to adapt its internal structures to reflect the
requirements of this new strategy. It also invites each Member State to reflect on ways
of  improving  synergy  between  its  national  information  policy  and  the  Union's
communication strategy.

20

III. Gradual implementation tailored to needs

The European Union's new information and communication strategy must be viewed
in  the  context  of  the  Union's  current  resources,  which  are  limited,  particularly  as
regards the capacity of the European institutions themselves.

Consequently, its success will  depend  to a  very large extent  on  partnership  with  the
Member States: without active support from the national and regional authorities, the
European institutions will not be able to get their message across to or engage with the
general public.

If  the  communication  strategy  is  to  be  developed  to  the  full,  cooperation  with  the
Member States must operate at three levels:

–  interinstitutionally,

–  in the various facets of decentralisation;  and

–  in the partnership with civil society (cf. table at Annex 2).

1. 

FORMS OF INTERINSTITUTIONAL COOPERATION

As  indicated  in  the  Commission's  first  communication  on  the  subject,10  the
Interinstitutional  Group  on  Information  (IGI)  is  the  cornerstone  of  interinstitutional
cooperation.

1.1

The IGI

Membership

Politically  speaking,  the  IGI  is  co-chaired  by  the  Commission,  the  European
Parliament and the Council. The other EU institutions and bodies can take part as
observers.

The Group meets at least twice a year.

(cid:1)  Remit

for 

interinstitutional 

The  Group  sets  the  thematic  priorities  for  information  and  lays  down  joint
and
guidelines 
communication.  It  evaluates  the  coordination  of  centralised  and  decentralised
information activities aimed at the general public on the topics chosen. Each year it
gives its views on the topics for the coming year, basing itself on a report drawn up
by the Commission.

cooperation  on  EU 

information 

10  Communication on a new framework for cooperation on activities concerning the information and

communication policy of the European Union (COM(2001)354).

21

                                                
(cid:1)  Prince working party

A technical working party whose members are drawn from the three institutions is
being  set  up  to  monitor  information  activities  covered  by  the  Prince  programme,
which  is  essentially  an  action  framework  for  interinstitutional  cooperation  on
budgetary matters.

1.2

Developing messages

Cooperation  between  the  EU  institutions  is  also  important  when  it  comes  to
formulating  and  defining  the  information  and  communication  strategies  to  be
developed  on  the  various  topics  selected  by  the  IGI,  particularly  as  regards
coordination.

What action needs to be taken?

(a)  The Commission's role

The  European  Union  must  establish  a  shared  fund  of  messages  on  each  topic
chosen. The core messages on all subjects falling within Community jurisdiction
will be prepared within the Commission under the authority of the Member of the
Commission  concerned.  They  will  be  tested  by  focus  groups  in  each  Member
State before the Commission passes them on to the other institutions.

Both  in  the  interests  of  its  representatives  and  to  boost  its  own  capacity  to  take
action,  the  Union  must  be  in  a  position  to  disseminate  its  fund  of  messages  on
each topic selected. These messages will supplement the background information
which is essential to the successful dissemination of information.

Building up a fund of messages on each topic and checking to ensure that they are
accepted by  as  many  people as  possible is the  key  to  success  for  a  coherent  EU
information and communication  strategy. The  Union must therefore be  equipped
with the necessary monitoring machinery.

(b) Cooperation with the Member States

In  addition  to  building  up  a  fund  of  messages,  the  Commission  must  develop  a
communication  strategy  geared  to  each  priority  information  topic  (messages,
targets,  types  of  action,  timetable,  budget).  On  this  basis,  the  Commission  will
propose to the European Parliament and the Member States that they cooperate to
implement the decisions taken by the IGI.

It  goes  without  saying  that  each  Member  State  will  be  at  liberty  to  endorse  the
strategy and messages proposed - or not, as the  case  may  be.  Adopting them, or
even adapting them in line with specific national needs, would greatly enhance the
Union's coordinated communication strategy.

In  particular,  these  messages  should  make  it  possible  for  the  information  on
Community  legislation  disseminated  by  the  European  institutions  (notably  the
Commission  and  Parliament)  and  also  by  the  Member States  to  be  better
structured, especially when it relates to one or more of the main priority topics.

22

The Commission has also duly noted the Council's wish to cooperate with it at as
early  a  stage  as  possible  in  formulating  an  appropriate  strategy  and  in  preparing
the  necessary  messages  for  the  priority  topics  selected  jointly  by  the  IGI.  It  is
ready to work on this with the European Parliament in a spirit of interinstitutional
understanding.  And  it  is  prepared  to  present  its  proposals  on  the  strategy  to  be
developed and the fund of "European" messages which it has drawn up and tested
to  the  Council's  Information  Group  and  the  national  experts,  whom  it  would
encourage to take part in this type of activity.

Fund of messages on each topic:

Commission  primarily  responsible:  cooperation  with  other  institutions.  Member
States may cooperate or not.

2. 

A NEW DECENTRALISED PARTNERSHIP

Implementation  of  this  strategy  is  based  on  complementary  action  by  the  European
institutions and the Member States.

2.1

Effective decentralisation

In  the  case  of  the  European  institutions,  the  Commission  representations  and  the
European  Parliament  information  offices  will  work  together  to  adapt  the  Union's
message  to  local  and  national  situations  within  a  joint  framework  drawn  up  jointly
with the Member State.

And  as  part  of  the  decentralisation  process - with  regard  to  implementation  and
reworking  of  the  message - the  Commission  representations,  together  with  the
European  Parliament  information  offices,  will  shoulder  the  main  responsibility  for
conducting the various information campaigns.

Basically, they will have to draw up the communication plan for each subject chosen
by  the  IGI,  where  necessary  with  assistance  from  outside  experts.  The  plan  will
incorporate  the  action  programme  drawn  up  jointly  with  the  Member  State
(agreement) and the Union's independent action programme where the Member State
does not go along with the priorities or messages selected.

Drawing on support from the relevant DGs,  the representations will also rework the
message to meet national, regional or local requirements adapting the content  of  the
information campaigns to the various target groups, the media selected, and people's
everyday concerns. In particular, presentation will need to be adapted to take account
of  the  communications  vector  used.  Radio  and  television  clearly  require  a  special
format different from that required by the press.

This must be done as close to the target groups as possible and in direct liaison with
the channels used.

23

2.2

Sharing responsibility better

Overall, it would be helpful to be able to draw on the expertise and resources of each
of the Member States. Each national information service will have a key role to play
in developing and implementing the various information campaigns.

They  will  need  not  only  to  participate  in  drawing  up  the  communication  plan  to  be
prepared  in  partnership  with  the  institutions  but  also  to  ensure  that,  overall,  the
European strategies and messages and the national subject focus and presentation are
consistent.

The Union's information and communication strategy cannot stand alone. It must slot
into the overall play of government communication policy providing value added and
a tangible European dimension to the democratic debate in each Member State.

To  this  end,  the  Commission  is  giving  thought  to  the  best  way  to  set  about
crystallising this cooperation in all its forms. Drawing on the example of the various
cooperation mechanisms already established with the Member States, the Commission
would like to check with the Council and Parliament whether it would be possible to
draw  up  a  memorandum  of  understanding  with  each  Member  State.  The  aim  of  the
memorandum would be to put a political seal on the mutual contractual undertaking
between the European Union and the Member States to work together to improve the
dissemination of general information on European matters.

This type of memorandum could also have the merit of recognising at national level
the  role  of  the  networks  and  relays  in  transmitting  a  regular  flow  of  information,
thereby ensuring ongoing public debate in Europe. It could provide for the systematic
networking  of 
in  each  Member  State  (national
information office and ministry concerned by a given priority information topic) and
the  Commission,  the  Council  and  the  European  Parliament.  It  could  also  give
Member States  the  freedom  to  form  more  specific  partnerships  in  relation  to  the
information measures proposed by a particular Commission Directorate-General in its
area of responsibility.

information  correspondents 

This  formula  would  offer  the  flexibility  necessary  for  close  cooperation  between
Member States and the European Union and could subsequently facilitate negotiation
of  the  agreements  needed  to  develop  the  priority  information  topics  selected  by  the
IGI.

This system would clearly not exclude other forms of partnership at national level or
with the constitutional regions or even bodies representing civil society.

Cooperation between the European Union and Member States:

A memorandum of understanding +  agreements on information topics prioritised  by
the IGI.

But this collaboration between the European institutions and the Member States must
clearly  not  be  exclusively  interinstitutional;  it  must  develop  at  grassroots  level,  as
close to the target group as possible.

24

3. 

COLLABORATION AS CLOSE TO THE PEOPLE AS POSSIBLE

Developed gradually over time on the basis of a vast number of varied initiatives, the
Community  information  and  documentation  relays  and  networks  now  incorporate
over 700 centres in the Member States. They are designed to bring information to the
people and are coordinated and facilitated by the Commission.11

In addition to these networks and relays, which provide a physical presence, there are
also some 550 "Team Europe" lecturers.

However, the networks  and relays are not actually part of the Commission; they are
mostly  the  result  of  partnerships  with  Member  States  and,  above  all,  local
authorities.12

Their  experience,  flexibility  and  immediate  proximity  to  the  representatives  of  civil
society  and  the  general  public  make  them  invaluable  and  a  favoured  instrument  for
implementing the European Union's information and communication strategy. On the
ground, they  embody the synergy  of  resources available to  the  European Union,  the
Member  States  and  civil  society,  translating  into  practice  the  principle  of  the
decentralisation of information.

The  potential  is  there;  it  simply  needs  to  be  exploited  more  effectively.  The
Commission  therefore  believes  that  all  the  relays  and  networks  should  be  analysed
and  assessed  with  a  view  to  drawing  up  a  new  and  more  coherent  framework  for
action  making  better  use  of  their  role  in  the  new  strategy,  and  preparing  to  extend
them  to  future  Member  States  with  the  ultimate  objective  of  ensuring  that  every
region has one.

This new framework should be based on the following principles:

–  a more homogeneous  and  coherent structure  for  the  various  "levels"  of  relay  and
existing  network  (national,  regional/interregional,  local),  also  in  terms  of  image
(name, logo, etc.);

–  rationalisation  and  greater  decentralisation  of  management 

to 

improve

cost-effectiveness;

11  These  initiatives,  for  which  DG  PRESS  is  responsible,  are  the  following (other  applications  for

centres to be opened are under examination):
(cid:1) 
(cid:1) 
(cid:1) 
(cid:1) 
(cid:1) 

3 major national centres for information and documentation in Paris, Lisbon and Rome;
3 interregional centres for information and documentation in Thessaloniki, Naples and Berlin;
142 Info-Points Europe (IPE) ;
134 rural information and promotion carrefours;
328  European  Documentation  Centres  (EDC),  24  depository  libraries  and  72  European
reference centres (which together with the 360 EDCs set up in countries outside the EU make
up a total network of 784 centres).

12 The relays and networks are not part of the Commission; they are actually independent centres run
by host structures which provide the location and are the main source of funding. The Commission
is  a  minority  partner  which  has  signed  an  agreement  with  the  host  structure  –  a  university,  local
authority,  etc.  -  undertaking  to  provide  it  with  the  services  and  support  needed  to  enable  it  to
develop its activities and, in certain cases, an annual grant.

25

                                                
–  greater sharing of responsibilities and a closer partnership with the Member States,

taking due account of administrative and local characteristics;

–  the development of interinstitutional cooperation, not just at national level with the
major national centres (Paris, Lisbon and Rome) but also at interregional and local
level.

Once  defined,  the  new  framework  for  action  should  be  the  subject  of  negotiations
with  the  Member  States  so  as  to  ensure  that  it  stems  from  the  common  will  of  the
Union and the Member States. It should also take account of the potential of the other
information  multipliers  with  which  the  Commission  works,  such  as  independent
information networks.

Relays and networks:

Analysis and assessment of all relays and networks.

Development  of  a  new  framework  for  action  (mission,  modus  operandi,  future
developments).

26

CONCLUSION

1.

The  proposed  strategy  is  based  on  all  the  contributions  received  by  the
Commission  during  the  debate  following  the  initial  communication  it
adopted in June 2001. It represents the consensus if not the common view of
Parliament,  the  Council  and  the  Commission:  each  of  the  three  institutions
will have to make a clear commitment to this new "contract", which will be
implemented by the Interinstitutional Group on Information.

Implementing  the  strategy  will  require  a  joint  effort  by  the  institutions  and
the Member States:

– 

– 

– 

drawing  up  a  reference  framework  common  to  all  the  institutions,
encompassing  certain  key  values,  for  use  in  formulating  messages
geared  to  the  main  information  topics,  must  be  a  priority  for  each
partner;

a  change  of  culture  within  each  institution  but  also  on  the  part  of  the
Member  States  must  be  a  regular  and  ongoing  requirement,  achieved
primarily through training programmes for all managers;

the  partnership  with  each  Member  State  must  be  based  on  a  new
approach  which  goes  beyond  the  basic  legal  and  financial  framework
and  is  not  impeded  by  the  often  cumbersome  and  rigid  procedures,
either when it comes to disseminating general information or in terms
of more regular contacts with national information services.

Underpinned  by  the  Union’s  institutional  architecture,  the  strategy  is
intended to be both ambitious and realistic. Its success will chiefly depend on
whether the necessary political impetus is brought to bear.

The Commission will very shortly begin taking the main measures to put the
strategy in place in line with the attached action plan (Annex 3). The strategy
should be operational, at least as far as its broad lines are concerned, from the
beginning of 2003; however, it will only be able to develop its full potential
in the medium term.

The Commission therefore proposes that a review be scheduled for 2005 with
all  the  parties  involved  in  order  to  carry  out  an  exhaustive  evaluation  of
progress achieved and to determine any new lines of action that are required
for  an  enlarged  Europe,  once  the  new  Commission  and  Parliament  are  in
place and the next Intergovernmental Conference has been held.

2.

3.

27

ANNEX 1

EXAMPLE OF THE PREPARATION OF A MESSAGE CONCERNING
ENLARGEMENT
FROM THE STANDPOINT OF THE EUROPEAN UNION

FINAL MESSAGES

⇑⇑⇑

TESTING OF THE MESSAGE ON THE
CONTROL GROUPS INTHE MEMBER
STATES

⇑

DEVELOPMENT OF THE MESSAGE

Opportunity:  wider  market  for  future
generations, etc.

Security: stability through solidarity, etc.

Prosperity: more markets and jobs, etc.

⇑⇑⇑⇑⇑⇑⇑⇑⇑⇑

OPPORTUNITY, SECURITY,
PROSPERITY

⇑⇑⇑ VALUES ⇑FILTER ⇑⇑⇑

⇑

CITIZENS’ CONCERNS

AND RESULTS OF SURVEYS
(Eurobarometer) CONDUCTED AMONG
THE CONTROL GROUPS

JOB LOSSES, LOWER LIVING
STANDARDS, IMMIGRATION

⇑

TOPIC – ENLARGEMENT

28

EXAMPLE OF THE PREPARATION OF A MESSAGE CONCERNING
ENLARGEMENT
FROM THE STANDPOINT OF THE CANDIDATE COUNTRIES

FINAL MESSAGES

⇑⇑⇑

TESTING OF THE MESSAGE

ON THE CONTROL GROUPS IN

THE CANDIDATE COUNTRIES

⇑

DEVELOPMENT OF THE MESSAGE

Opportunity: consolidation of democracy,
etc.

Security: 
respect for personal and national identity

stability 

through 

solidarity,

Prosperity: fair competition, etc.

⇑⇑⇑⇑⇑⇑⇑⇑⇑⇑

OPPORTUNITY, SECURITY,
PROSPERITY

⇑⇑⇑ VALUES ⇑FILTER ⇑⇑⇑

⇑

CITIZENS’ CONCERNS

AND RESULTS OF SURVEYS
(Eurobarometer) CONDUCTED AMONG
THE CONTROL GROUPS

FEARS WITH REGARD TO
COMPETITION, SECOND-CLASS
CITIZENSHIP, IDENTITY

⇑

TOPIC – ENLARGEMENT

29

ANNEX 2
ORGANISATION PLAN

ORGANISATION PLAN

INTERINSTITUTIONALGROUP ON INFORMATION
(IGI)

COUNCIL
(Working Party on Information
with heads of national
information services)

COMMISSION

DG PRESS

DG
CONCERNED

OTHER DGs

EUROPEAN PARLIAMENT
(Parliamentary committees
concerned)

                                                                          MEMORANDUM
OF UNDERSTANDING

MEMBER STATES
CONVENTIONS
(National information services and
ministries concerned)

AGREEMENTS

EU NATIONAL PRESENCE

Commission
representations

Parliament offices

RELAYS AND
NETWORKS

MEDIA

CIVIL SOCIETY

OPINION LEADERS

30

ANNEX 3
ACTION PLAN

September 2002

(cid:1) 

IGI: Agreement between the three institutions on the main priority information topics for
2003 and 2004

This agreement must be reached before first reading of the budget by Parliament

(cid:1)  Launch of the analysis and evaluation of the networks and relays

(cid:1) 

Introduction  of  a  training  programme  tailored  to  the  Commission’s  needs  following
adoption of the new strategy

(cid:1)  Launch of the development and testing, via the focus groups in each Member State, of the

central thread and values underpinning the communication process

October 2002

(cid:1)  Budgetary validation of the resources allocated to each priority topic

(cid:1)  Analysis of the status of national public opinions with regard to the priority information

topics selected

(cid:1)  Start of the preparation by the representations of communication plans for each topic

(cid:1)  Evaluation  of  the  resources  available  to  the  representations  in  relation  to  the  greater

decentralisation resulting from the new strategy

November 2002

(cid:1)  Drawing  up  of  a  memorandum  of  understanding  embodying  the  political  agreement

between the European Union and the Member State

(cid:1)  Political validation of the central thread and values

(cid:1)  Planning  and  coordination  of  action  to  be  taken  by  the  Directorates-General  chiefly

concerned by the priority information topics selected

(cid:1)  Development of the main funds of messages for the topics selected

(cid:1)  Validation of the Member States’ participation in the proposed partnership

31

December 2002

(cid:1)  Meeting  with  the  heads  of  the  information  services  of  all  the  Member States  to  validate

the communication plans for 2003 and maximise synergy

(cid:1)  Proposing of corresponding agreements to the Member States wherever possible (or other

possible frameworks for action)

January 2003

(cid:1)  Evaluation of action taken in 2002

(cid:1)  On the basis of the completed analysis, preparation and negotiation of the new framework

for action for the relays and networks

March 2003

(cid:1) 

IGI: validation of the evaluation of action taken in 2002 and determination of the priority
topics for 2004 and 2005

July 2003

(cid:1)  Annual  debate  in  Parliament,  with  Council  participation,  on  the  EU’s  information  and

communication policy

2003

(cid:1)  Gradual rationalisation of the relays and networks

(cid:1)  Development  over  the  whole  year  of  coordination  and  planning  under  the  new  strategy,

also with regard to achieving synergy from the different Commission instruments

(cid:1)  Development of interinstitutional cooperation

2003-04

(cid:1)  Training  activities  tailored  to  the  needs  of  Commission  staff  –  Opening-up  to  the  other

institutions

(cid:1)  Closer  coordination  of  the  work  of  the  representations  and  consolidation  of  the

Commission's rebuttal function

2004

(cid:1)  Extension of the relays and networks in the candidate countries

(cid:1)  Appropriate increase in the resources of the representations

(cid:1)  Development of the representations in the new Member States

32

ANNEX 4
LEGISLATIVE FINANCIAL STATEMENT

Policy area(s): PRESS AND COMMUNICATION

Activit(y/ies): 16.01-16.02-16.03-16.04-16.05

Title of action: AN INFORMATION AND COMMUNICATION STRATEGY FOR THE EUROPEAN UNION

1.

BUDGET LINE(S) + HEADING(S)

A7:

Decentralised expenditure on support staff and administration

B3-300:

General information work

B3-300A:

General  information  work  -  technical  and  administrative  assistance  and
support expenditure

B3-301:

Information outlets

B3-301A:

Information outlets - technical and administrative assistance and support
expenditure

B3-303:

Communication work

B3-303A:

Communication  work  -  technical  and  administrative  assistance  and
support expenditure

B3-306:

Priority information measures13

B3-306A:

Priority  information  measures  -  technical  and  administrative  assistance
and support expenditure

2.

2.1

2.2

OVERALL FIGURES (EU 15)

Total allocation for action (Part B): €285.065 million for commitment 14

Period of application:

2003 and subsequent budget years

2.3

Overall multiannual estimate of expenditure:

13  Budget headings for which other DGs have authorising power (in liaison with DG PRESS).
14  Excluding the new priority information topic proposed: Europe in the world.

33

                                                
(a)
Schedule  of 
intervention) (see point 6.1.1)

commitment 

appropriations/payment 

appropriations 

(financial

(€ million to three decimal places)

2003

2004

2005

2006

Total

Commitments

71.100 72.575 63.330 60.285 267.290

Payments

66.750 65.209 54.666 52.182 238.807

(b) Technical and administrative assistance and support expenditure (see point 6.1.2)

Commitments

3.565

4.625

4.670

4.915

17.775

Payments

3.180

4.625

4.670

4.915

17.390

Subtotal a+b

2003

2004

2005

2006 TOTAL

a+b

Commitments

74.665 77.200 68.000 65.200 285.065

Payments

69.930 69.834 59.336 57.097 256.197

Overall financial impact of human resources and other administrative expenditure (see

(c)
points 7.2 and 7.3)

Commitments/
payments

1.480

1.480

1.480

1.480

5.920

TOTAL a+b+c

2003

2004

2005

2006 TOTAL
a+b+c

Commitments

76.145 78.680 69.480 66.680 290.985

Payments

71.410 71.314 60.816 58.577 262.117

34

2.4

Compatibility with financial programming and financial perspective

Proposal  is  compatible  with  existing  financial  programming  (with  the  exception  of  the  new
priority information topic proposed: Europe in the world)

2.5

Financial impact on revenue

No financial implications for revenue

3.

BUDGET CHARACTERISTICS

Type of expenditure

New

EFTA
contribution

Contributions
from applicant
countries

Heading
financial
perspective

Non-comp

 Diff

NO

NO

NO

3

4.

LEGAL BASIS

Measures taken by the Commission by virtue of its institutional prerogatives

5.

DESCRIPTION AND GROUNDS

5.1

Need for Community intervention

5.1.1 Objectives pursued

The communication from the Commission on an information and communication strategy for
the  European  Union  takes  account  of  the  fact  that  the  Council  is  now  participating  in  the
interinstitutional cooperation exercise. The approach is two-pronged:

–  giving the European Union the capacity to formulate and disseminate messages geared to

and focused on the various priority information topics;

–  establishing  a  voluntary  working  partnership  with  the  Member  States  fostering  synergy

between their structures and know-how and the activities of the European Union.

The new information and communication strategy stems from a political determination shared
by the three institutions, which will be given shape by the decisions of the  Interinstitutional
Group on Information (IGI).

It  implies  a  change  of  culture  for  each  of  the  institutions,  entailing  major  adjustments,
especially in terms of coordination, so as to improve the provision of information and ensure
that it reaches the European public.

5.1.2 Measures taken in connection with ex ante evaluation

Besides  the  political  awareness  shared  by  the  three  institutions  and  the  Member  States,  the
proposed  strategy  is  based  on  internal  evaluations  (consolidated  result  of  the  round  table
meetings  organised  by  the  representations  and  replies  to  a  questionnaire  from  the  various

35

networks)  and  on  preliminary  external  studies  of  the  strategy  itself  and  the  state  of  public
opinion in Europe (focus groups).

5.1.3 Measures taken following ex post evaluation

In its communication the Commission proposes an annual evaluation of the main information
and communication activities. As far as the Commission is concerned, this will be based on
DG PRESS's new evaluation methodology, which should be operational from 2003. The other
institutions  and  the  Member  States  should  also  be  able  to  draw  on  their  own  resources  to
contribute to the evaluation of the partnership.

5.2

Actions envisaged and budget intervention arrangements

The budget impact of this communication is concentrated on  Title  B3-3  of the budget,  both
for  operational  and  technical  and  administrative  expenditure.  The  actions  envisaged  are
essentially  generalinformation  work,  information  outlets,  communication  work  and  priority
information measures (Prince).

5.3 Methods of implementation

The overall objectives will be achieved through:

–  better  coordination  of  general  information  work  between  all  DGs  and  DG  PRESS

(including the representations);

–  greater decentralisation of information work, with the involvement  of the  Member States

and the institutions;

–  efficient use of all existing information outlets and networks.

The strategy will be implemented primarily by way of the following measures:

GENERAL INFORMATION WORK

–  More use of feed-back tools for information policy

–  Closer  coordination  of  decentralised  information  measures  for  the  general  public  via  the
representations  on  priority  topics,  with  best  possible  use  made  of  existing  outlets  and
networks

–  Evaluation  report  on  the  impact  of  the  combined  action  of  the  various  information  tools

deployed under the new information strategy

OUTLETS

The importance attached to grassroots information is reflected in the close attention afforded
to coordinating the work of networks and outlets, via the representations in particular.

COMMUNICATION WORK

The  representations  will  seek  to  establish  partnerships  with  each  Member  State  in  order  to
formulate with them messages geared specifically to public opinion in the individual countries
and to test these messages on the focus groups.

36

These  voluntary  working  partnerships  with  the  Member  States  will  foster  synergy  between
Member States' structures and know-how and the activities of the European Union.

PRIORITY INFORMATION MEASURES

The Prince information activities covered by the communication include:

–  enlargement

–  the debate on the future of the Union

–  the area of freedom, security and justice

–  Europe in the world.

The  expenditure  inherent  in  implementing  the  Prince  programme  will  depend  on
decisions/guidelines adopted or to be adopted by the Commission.

The resources required for this information work will be assessed in the light of the specific
measures that will be taken to implement the new strategy.

Giving the representations a greater role in planning programmes for each information topic is
a key aspect of the new strategy and will require assistance from communication specialists.

37

6.

FINANCIAL IMPACT

6.1

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

Specific requirements flowing from the measures recommended in the communication will be
covered  from  existing  resources  under  Title  B3-3  (Information  and  Communication).  The
allocation  of  the  amounts  deemed  necessary  could  be  reviewed  in  the  context  of  the
Commission's APS/PDB procedure.

6.1.1 Financial intervention

Commitments (in € million to three decimal places)

2003

2004

2005

2006

Total

Breakdown

B3-300  General 
work

information

21.000

20.215

20.610

21.105

82.930

B3-301 Outlets

14.400

14.970

15.260

15.650

60.280

B3-303 Communication work

14.700

14.890

15.160

15.530

60.280

B3-306  Priority 
measures

information

21.000

22.500

12.300

  8.000

63.800

TOTAL

71.100

72.575

63.330

60.285

267.290

38

6.1.2. Technical and administrative assistance and support expenditure

Commitments (in € million to three decimal places)

2003

2004

2005

2006

Total

1. Technical and administrative
assistance
(a) Technical assistance offices
(TAOs)

(b)  Other 
technical 
administrative assistance

and

- intra muros:15
B3-300A

B3-303A

- extra muros:

B3-301A

B3-303A

0.030

0.030

0.030

0.030

0.120

0.100

0.100

0.100

0.100

0.400

0.300

0.305

0.315

0.325

1.245

Communications specialists

1.580

1.610

1.640

1.670

6.500

1.380

2.400

2.400

2.600

8.780

 B3-306A

Existing 
correspondents)

contracts 

(Prince

- currently €1 380 000

-  additional  expenditure  from
200416

23 reps. x 52 000 = €1 200 000

Subtotal 1

3.390

4.445

4.485

4.725

17.045

2. Support expenditure
(a) Studies

B3-300A

B3-301A

(b) Meetings of experts

(c) Information and
publications

0.150

0.155

0.160

0.165

0.025

0.025

0.025

0.025

0.630

0.100

Subtotal 2
TOTAL

0.175
3.565

0.180
4.625

0.185
4.670

0.190
4.915

0.730
17.775

15  Occasional assistance from information officers (e.g. freelances).
16  1  correspondent  per  representation  (to  be  financed  under  the  multiannual  financial  programming  for  all

headings concerned by this financial statement).

39

                                                
6.2. Calculation of costs by measure envisaged in Part B

Breakdown

B3-300 and B3-300A

General information work

B3-301 and B3-301A

Information outlets

>  evaluations  (already  included  in
PDB 2003)

B3-303 and B3-303A

Communication work

B3-306*

Priority information measures

- Euro

- enlargement

-  the  debate  on  the  future  of  the
Union

-  the  area  of  freedom,  security  and
justice

- Europe in the world17

>  evaluations  (under  appropriations
for 2003)

B3-306A (**)18

TOTAL COST

Commitments (in € million to three decimal places)

Type of
outputs
(projects,
files)
1

Number of
outputs

Average unit
cost

Total cost
2003

2

3

4=(2X3)

21.180

14.725

0.100

16.380

21.000

p.m.

0.100

1.380

74.665

17  New  topic,  not  included  in  PDB 2003,  which  will  be  proposed  in  future  as  one  of  the  priority  measures

(amount not known at this stage).

18  Additional  requirement  from  2004:  1  Prince  correspondent  per  representation  (23  reps  x  €52 000  =
€1.2 million; to be financed under the multiannual financial programming for all headings concerned by this
financial statement).

40

                                                
*

Budget  headings  for  which  other  DGs  have  authorising  power  (in  liaison  with  DG
PRESS); other priority topics likely to be identified by the Commission in future have not
been included in this table.

** Impact from 2004: since the communication will be implemented gradually, expenditure
for a full year is planned from 2004; any additional requirements in 2003 will be funded
by transfer of appropriations.

7.

IMPACT ON STAFF AND ADMINISTRATIVE EXPENDITURE

(EU 15)

The requirements in terms of human and administrative resources will be encompassed by the
amount allocated to DG PRESS under the annual allocation procedure.

7.1.

Impact on human resources

Types of post

Staff to be assigned to management of the
action using existing and/or additional
resources

Total

Description of tasks deriving
from the action

Number of temporary
posts

Number of
temporary posts

permanent posts

temporary posts

Officials or

Temporary staff

A

B

C

Other human resources

A07000 – Auxiliary staff

–  Technical

A07002 
assistance

Total

3

4

3

-

1C

2

-

-

-

-

3

4

3

-

1

2

13

41

7.2

Overall financial impact of human resources

Type of human resources

Amount (€)

Method of calculation

Officials

1 080 000

10 x 108 000

Other human resources

A07000 – Auxiliary staff

A07002 – Technical assistance

Total

43 697

226 000

1 349 697

1 x 43 697

2 x 113 000

The amounts are total expenditure for twelve months.

7.3

Other administrative expenditure deriving from the action

Budget heading

Amount ()

Method of calculation

Overall allocation (Title A7)

A07010 – Missions

A07060 – Training

80 000

50 000

Total

130 000

(*)

The amounts are total expenditure for twelve months.

42

(*) Missions (A0-7010): €80 000

These appropriations  are to  meet the requirements  generated by the  new  measures  provided
for by the communication  for  travel  by officials from  the  representations  to  headquarters or
within Member States or from headquarters to the representations.

The following activities are concerned:

–  planning and coordination of measures, including establishing synergy between the various

communication tools - central and decentralised deployment (€20 000);

–  negotiation,  preparation  and  follow-up  of  the  memorandum  of  understanding  with  the

Member States and the resulting agreements (€20 000);

–  introduction of a programme of continuous training, based on the strategic approach set out
in  the  communication,  for  all  staff  including  those  assigned  to  the  representations
(€40 000).

(*) Training (A0-7060): €50 000

Specific training programmes on communication will have to be organised in accordance with
staff needs, on the basis of the proposed new approach.

I.

II.

Annual total (7.2 + 7.3)

€1 479 697

Duration of action

4 years (from 2003)

III.

Total cost of action (I x II)

€5 918 788

8.

FOLLOW-UP AND EVALUATION

8.1

Follow-up arrangements

Internal reporting systems already in operation will be reinforced in order to take account of
the new information policy components: coordination, planning and decentralisation.

8.2

Arrangements and schedule for evaluation

Appropriate tools will be deployed on the basis of a methodology (expected to be introduced
in the second half of  2002) designed to  provide for systematic  and  regular  evaluation  of all
information and communication measures carried out by DG PRESS.

9.

ANTI-FRAUD MEASURES

All  contracts,  agreements  and  legal  undertakings  concluded  between  the  Commission  and
beneficiaries  of  payments  allow  for  on-the-spot  checks  by  the  Commission  or  the  Court  of
Auditors  at  the  premises  of  the  direct  beneficiary  of  the  Community  grant  (or  the
second-degree beneficiary in the case of an activity managed in a decentralised manner) and

43

the  eventuality  of  requiring  documentary  evidence  for  any  expenditure  made  under  such
contracts, agreements and  legal undertakings within five  years  of  the  end  of  the  contractual
period.

Beneficiaries are subject to reporting and financial accounting obligations, analysed from the
point  of  view  of  content  and  eligibility  of  expenditure,  bearing  in  mind  the  purpose  of  the
Community  funding  and  taking  account  of  the  contractual  obligations  and  the  principles  of
economy and sound financial management.

44