Proposal for a Council Decision establishing a Community action programme to promote active European citizenship (civic participation)
Date: 2003-05-27
Institutions: European Commission
Subjects: EU programme, European citizenship, economic and social cohesion

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 27.5.2003
COM (2003) 276 final

2003/0116 (CNS)

Proposal for a

COUNCIL DECISION

establishing a Community action programme to promote active European citizenship
(civic participation)

(presented by the Commission)

EXPLANATORY MEMORANDUM

Introduction

In  addition  to  the  Treaty,  which  establishes  European  citizenship,  various  recent  statements
stress the need to promote active citizenship:

the European Council of Nice, in its Declaration 23, "recognises the need to improve and to
monitor the democratic legitimacy and transparency of the Union and its institutions, in order
to bring them closer to the citizens of the Member States";

the European Parliament, the Council and the Commission, in the preamble to the Charter of
Fundamental  Rights  of  the  European  Union,  state  that  the  Union  contributes  to  the
preservation and the development of the common values while respecting the diversity of the
cultures and traditions of the peoples of Europe;

the  Laeken  Declaration  annexed  to  the  conclusions  of  the  European  Council  of  14
and 15 December 2001 asserts that one of the basic challenges to be resolved by the European
Union is "how to bring citizens, and primarily the young, closer to the European design and
the European institutions";

the Commission's White Paper on Governance stresses the principle of citizen participation in
devising  and  carrying  out  policy,  of  involvement  of  civil  society  and  its  component
organisations.

Moreover, the Community and the Member States have as their objectives the promotion of
employment,  improved  living  and  working  conditions,  proper  social  protection,  the
development of human resources with a view to lasting high employment and the combating
of exclusion.

A common policy on asylum, including common European arrangements for asylum, is also a
constituent  part  of  the  European  Union's  objective  of  establishing  progressively  an  area  of
freedom,  security  and  justice  open  to  those  who,  forced  by  circumstances,  legitimately  seek
protection in the European Union.

Background

For  several  years,  support  has  been  provided  for  promoting  active  European  citizenship,
especially under headings in Part A of the budget:

heading  A-3016  co-finances  the  operating  costs  of  the  Association  of  the  Councils  of  State
and Supreme Administrative Jurisdictions of the European Union;

heading A-3020 co-finances the operating costs of the "Our Europe" Association;

heading  A-3021  co-finances  the  operating  costs  of  European  think  tanks  and  organisations
advancing the idea of Europe;

heading A-3024 co-finances the activities of associations and federations of European interest;

heading A-3026 co-finances the operating costs of European think tanks;

2

heading  A-3030  co-finances  the  operating  costs  of  the  European  Council  on  Refugees  and
Exiles;

heading  A-3036  co-finances  the  operating  costs  of  the  Jean  Monnet  House  and  the  Robert
Schuman House;

article A-321 supports town-twinning schemes in the European Union.

In  2003,  Community  support  for  the  promotion  of  European  citizenship  can  also  be  funded
under three headings in Part B of the budget:

heading B3-305 finances measures for civil society by means of grants to non-governmental
organisations and trade union organisations;

headings  B3-4105  and  B5-803  co-finance  the  operating  costs  of  the  Platform  of  European
Social NGOs.

Most of these operations have hitherto been carried out without any legal basis.

Objectives

The  adoption  of  Council  Regulation  (EC,  Euratom)  No  1605/2002  of  25  June  2002  on  the
Financial Regulation applicable to the general budget of the European Communities1 and the
decision  to  base  the  structure  of  the  Commission  budget  on  the  ABB  (Activity  Based
Budgeting) approach require basic acts to be adopted for a number of grants hitherto financed
under  appropriations  entered  in  Part  A  (administrative  appropriations)  of  the  Commission
section of the budget (section III).

The purpose of this Decision is therefore to adopt an act providing a basis for grants towards
the promotion of active European citizenship, for a period of five years (2004–2008).

In  a  statement  in  connection  with  the  adoption  of  the  new  Financial  Regulation,  the
Commission  publicly  announced  its  intention  of  providing  basic  acts  for  grants  hitherto
financed under Part A. In this statement, "the European Parliament and the Council note the
Commission's  intention  of  submitting  a  proposal  for  a  Framework  Regulation  in  which  the
overall criteria regarding selection and the awarding of grants for the functioning of the bodies
provided for in Article 108(1)(b) may be specified".

Legal basis

The  proposal  is  based  on  Article  308  TEC,  which  provides  that  the  Council  shall,  acting
unanimously  on  a  proposal  from  the  Commission  and  after  consulting  the  European
Parliament, take the appropriate measures.

Budgetary impact

Since  the  proposal  essentially  addresses  the  technical  need  to  provide  a  legal  basis  for
operations for which no such basis currently exists, the amounts provided for are largely based
on those allocated in the budget of the European Union for the 2003 financial year.

1

OJ L 248, 16.9.2002, p. 1.

3

                                                
The total amount proposed is EUR 113.092 million.

Description of articles

Article 1 states the objective of the programme, viz. to support bodies working in the field of
active European citizenship and to promote actions in this field.

Article  2  states  the  conditions  of  access  to  the  programme  and  refers  to  the  Annex,  which
describes the three parts of the programme:

grants for the operation of bodies specified in the Decision;

grants  for  the  operation  of  other  bodies  pursuing  an  aim  of  general  European  interest  or  an
objective forming part of the European Union's policy of promoting active citizenship;

action  grants  for  the  other  operations  mentioned  above  (support  for  actions  conducted  in
particular  by  non-governmental  organisations,  associations  and  federations  of  European
interest  or  cross-industry  trade  unions;  actions  to  promote  town  twinning  instigated  by
municipalities, local and regional communities and bodies, local and regional authorities and
organisations thereof).

Article 3 provides for the geographic coverage of the programme to take in the Member States
and in some cases possibly the candidate countries and the EFTA/EEA countries.

Article 4 refers to the Annex for the arrangements for selecting the programme's beneficiaries.
Grants  for  the  operation  of  bodies  pursuing  an  aim  of  general  European  interest  or  an
objective forming part of the European Union's policy of promoting active citizenship, other
than  those  specified  in  the  Decision,  and  action  grants  are  to  be  awarded  on  the  basis  of
annual calls for proposals. As regards the former, provision is also made for arrangements in
the event that beneficiaries are specified by name by the Budgetary Authority.

Article 5 refers to the Annex for the conditions governing award of grants.

Article 6 specifies the programme duration as the period 2004–2008.

Article 7 lays down the arrangements for interim and final evaluations of the programme and
its renewal.

4

2003/0116 (CNS)

Proposal for a

COUNCIL DECISION

establishing a Community action programme to promote active European citizenship
(civic participation)

LE CONSEIL DE L'UNION EUROPÉENNE,

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in  particular
Article 308 thereof,

Having regard to the proposal from the Commission2,

Having regard to the opinion of the European Parliament3,

Whereas:

(1) 

(2) 

(3) 

(4) 

The  Treaty  establishes  citizenship  of  the  Union,  which  complements  and  does  not
replace  national  citizenship,  and  which  is  to  be  promoted  with  due  regard  for
subsidiarity.

The  Community  and  the  Member  States  have  as  their  objectives  the  promotion  of
employment,  improved  living  and  working  conditions,  proper  social  protection,  the
development  of  human  resources  with  a  view  to  lasting  high  employment  and  the
combating of exclusion.

Effective  and  uniform  application  of  Community  law  is  a  new  priority  which  is
indispensable to the proper functioning of the internal market. Citizens, consumers and
undertakings will be unable to assert all their rights under the Community legal order
before  any  national  court  unless  judges  are  sufficiently  informed  and  trained  in  this
regard. A common policy on the application of European law, including the case-law,
is an essential part of the European Union's objective of gradually creating an area of
freedom, security and justice.

The European Parliament, in its Resolution of 15 April 19884, considered it desirable
that  a  major  effort  be  undertaken  to  step  up  contacts  between  citizens  of  different
Member  States  and  stated  that  specific  support  from  the  Community  institutions  for
the  development  of  twinning  schemes  between  communes  or  towns  in  different
Member States is both rational and desirable.

2

3

4

OJ C […], […], p. […].
OJ C […], […], p. […].
OJ C 122, 9.5.1988, p. 38.

5

                                                
(5) 

(6) 

(7) 

(8) 

(9) 

The Tampere European Council of 15 and 16 October 1999 also stressed that an area
of freedom, security and justice should be based on the principles of transparency and
democratic  control,  involving  an  open  dialogue  with  civil  society  on  the  aims  and
principles of this area in order to strengthen citizens' acceptance and support.

The Social Policy Agenda adopted at Nice in December 2000 is based on a new form
of governance conferring on all stakeholders and actors (including civil society) a clear
and active role, enabling them to participate in managing the policies associated with
this  new  Agenda,  and  provides  that  the  non-governmental  organisations  are  closely
associated with the development of inclusive policies and equal opportunities for all.

The European Council of Nice, in its Declaration 23, recognises the need to improve
and  to  monitor  the  democratic  legitimacy  and  transparency  of  the  Union  and  its
institutions, in order to bring them closer to the citizens of the Member States.

The  Laeken  Declaration  annexed  to  the  conclusions  of  the  European  Council
of 14 and 15 December 2001 asserts that one of the basic challenges to be resolved by
the  European  Union  is  how  to  bring  citizens  closer  to  the  European  design  and  the
European institutions.

At Lisbon, in June 2000, the European Union set itself the goal of becoming, by 2010,
the most competitive and dynamic knowledge-based economy in the world, capable of
sustainable economic growth with more and better jobs and greater social cohesion. In
the  coming  years,  European  citizens  will  have  to  take  a  view  on  important  matters
arising  from  scientific  discoveries  and  technological  progress  liable  to  have  a  direct
and lasting impact on their lives and those of future generations.

(10)  Headings  A-321,  A-3020,  A-3021,  A-3024,  A-3026,  A-3036  and  B3-305  of  the
general budget of the European Communities for the financial year 2003 and previous
financial  years  have  proved  their  worth  in  promoting  a  sustained  dialogue  with  civil
society organisations and municipalities on the building of Europe.

(11)  The  "Our  Europe"  Association  takes  the  form  of  a  think-tank  of  personalities
representative  of  European  society  and  the  political,  social,  economic  and  scientific
worlds to act as a marketplace for ideas promoting a closer European Union; as such, it
pursues an aim of general European interest.

(12)  The  Jean  Monnet  and  Robert  Schuman  Houses  are  meeting  places  for  the  people  of
Europe,  the  aim  being  to  set  the  pioneers  and  pioneering  activities  of  European
integration  in  the  context  in  which  two  of  the  founding  fathers  of  Europe  lived  and
worked, and to provide information on today's and tomorrow's Europe; as such, these
organisations pursue an aim of general European interest.

(13)  Civil dialogue plays an essential part in promoting cooperation with civil society in the
social field, and was supported until 2001 under budgetary heading B3-4101. Although
the activities of the Platform of European Social non-governmental organisations were
financed  from  2001  to  2002  under  heading  B3-4105  for  preparatory  measures
combating  and  preventing  exclusion,  and 
joint  funding  under
headings B3-4105  and  B5-803,  they  are  much  wider-ranging  than  these  programmes
and  contribute  to  establishing  the  new  form  of  governance  advocated  in  the  Social
Policy Agenda adopted at Nice.

in  2003  by 

6

(14)  The  European  Council  on  Refugees  and  Exiles,  which  receives  support  under
heading-A-3030  of  the  general  budget  of  the  European  Communities  for  the
financial year  2003  and  previous  financial  years,  represents  the  organisations  of
refugees and displaced persons vis-à-vis the European Union, promoting the principles
and  policies  contributing  to  the  objectives  of  the  Treaty  as  regards  asylum  and
combating social exclusion.

(15)  Heading A-3016 of the general budget of the European Communities for the financial
year  2003  and  previous  financial  years  provides  support  for  the  Association  of  the
Councils  of  State  and  Supreme  Administrative  Jurisdictions  of  the  European  Union.
The Association's purpose is to promote exchanges of views and experience on matters
concerning  the  case-law,  organisation  and  functioning  of  its  Members  in  the
performance of their judicial and/or advisory functions. Its work is essential in order to
coordinate and relay to the public the judicial decisions of the Councils of State with
regard to Community law and to facilitate the pooling of methods of transposing and
implementing European law at national level.

(16)  Council  Regulation  (EC,  Euratom)  No  1605/2002  of  25  June  2002  on  the  Financial
Regulation applicable to the general budget of the European Communities5, hereinafter
“the Financial Regulation”, requires a basic act to be provided to cover these existing
support actions.

(17)  The European Parliament, the Council and the Commission undertook, at the time of
the adoption of the Financial Regulation6, to achieve the objective of ensuring that this
basic act enters into force as from the financial year 2004.

(18)  Provision should be made for the geographic coverage of the programme to extend to
the  Member  States,  and  possibly,  in  the  case  of  certains  actions,  to  the  candidate
countries and the EFTA/EEA countries.

(19)  Any  non-Community  financing  from  State  resources  must  comply  with  Articles  87

and 88 of the Treaty.

(20)  Any  support  granted  under  this  Decision  must  comply  strictly  with  the  principles  of

subsidiarity and proportionality,

HAS DECIDED AS FOLLOWS:

Article 1 – (cid:1)Programme objective(cid:2)

1.

This Decision establishes a Community action programme to support bodies working
in the field of active European citizenship and to promote actions in this field.

The programme shall have the following objectives:

a)

to promote the values and objectives of the European Union;

5

6

OJ L 248, 16.9.2002, p.1.
Statement of 13 June 2002 on the adoption of the Financial Regulation, concerning Article 108.

7

                                                
b)

c)

d)

e)

to bring citizens closer to the European Union and its institutions;

to  involve  citizens  closely  in  reflection  and  discussion  on  the  construction  of
the European Union;

to  intensify  links  and  exchanges  between  citizens  from  the  countries
participating 
town-twinning
arrangements;

the  programme,  notably  by  way  of 

in 

to  stimulate  initiatives  by  the  bodies  engaged  in  the  promotion  of  active  and
participatory citizenship.

2.

3.

The  activities  supported  by  the  programme  seek  to  support  the  operation  and  to
promote the actions of the bodies pursuing the programme's objectives in accordance
with the criteria set out in the Annex.

The programme shall start on 1 January 2004 and shall end on 31 December 2008.

Article 2 – (cid:1)Access to the programme(cid:2)

To be eligible for a Community grant for an action, bodies must satisfy the requirements set
out in the Annex.

The  action  concerned  must  be  in  accordance  with  the  principles  underlying  Community
activity in the field of active citizenship.

To be eligible for an operating grant for the ongoing work programme of a body pursuing an
aim of general European interest in the field of active citizenship or an objective forming part
of the European Union's policy in this area, bodies must satisfy the requirements of the Annex
and  be  so  structured  as  to  accommodate  actions  having  a  potential  impact  throughout  the
European Union.

Article 3 – (cid:1)Access to the programme for the EFTA/EEA countries and the candidate
countries for accession to the European Union(cid:2)

Participation in  the  programme  may  be  open  to  the  EFTA/EEA  countries  and  the  candidate
countries for accession to the European Union, in accordance with the relevant provisions in
the instruments governing relations between the European Community and these countries.

Article 4 – (cid:1)Selection of beneficiaries(cid:2)

1.

Operating  grants  for  the  ongoing  work  programme  of  a  body  pursuing  an  aim  of
general  European  interest  in  the  field  of  active  citizenship  or  an  objective  forming
part of the European Union's policy in this area shall be awarded in accordance with
the overall criteria laid down in the Annex.

8

2.

Grants for actions specified in  the programme shall  be  awarded  in  accordance  with
the overall criteria laid down in the Annex. Actions shall be selected by means of a
call for proposals.

Article 5 – (cid:1)Award of the grant(cid:2)

Grants under the different actions of the programme shall be awarded in compliance with the
provisions set out in the relevant part of the Annex.

Article 6 – (cid:1)Financial provisions(cid:2)

The annual appropriations shall be authorised by the Budgetary Authority within the limits of
the financial perspective.

1.

2.

Article 7 – (cid:1)Monitoring and evaluation(cid:2)

No  later  than  31  December  2007,  the  Commission  shall  submit  a  report  to  the
European  Parliament  and  the  Council  on  the  achievement  of  the  programme's
objectives  and  shall,  if  appropriate,  make  proposals  for  any  adjustment  to  be  made
with a view to continuing or not continuing the programme.

This report shall be based, inter alia, on an external evaluation report which must be
available no later than the end of 2006 and which shall appraise at least the overall
pertinence  and  coherence  of  the  programme,  the  effectiveness  of  its  execution
(preparation, selection, implementation of the actions) and the overall and individual
effectiveness of the various actions in terms of achievement of the objectives set out
in Article 1 and in the Annex.

The  European  Parliament  and  the  Council  shall,  in  accordance  with  the  Treaty,
decide  on  the  continuation  of  the  programme  as  from  1  January  2009.  Before
presenting proposals to this end, the Commission shall have the external evaluation
of the programme updated and shall take account of the outcome of this evaluation in
its proposals.

No  later  than  31  December  2009,  the  Commission  shall  present  to  the  European
Parliament  and  the  Council  a  report  on  the  achievement  of  the  programme's
objectives.  This  report  shall  be  based,  inter  alia,  on  the  outcome  of  the  external
evaluation  and  shall  assess  the  results  obtained  by  the  beneficiaries  of  the
programme, in particular as regards the effectiveness and efficiency of their actions,
considered overall and individually,  in  achieving  the  objectives  set  out  in  Article  1
and in the Annex.

9

Article 8 – [Entry into force]

This Decision shall enter into force on the day following that of its publication in the Official
Journal of the European Union.

Done at Brussels, […]

For the Council
The President
[…]

10

ANNEX

1.

ACTIVITIES SUPPORTED

The general objective laid down in Article 1 is to support work in the field of active
European citizenship by promoting the actions and operation of the bodies working
in this field.

This support takes the form of one of two types of grant:

– 

either  an  operating  grant  to  co-finance  expenditure  associated  with  the
permanent  work  programme  of  a  body  which  pursues  an  aim  of  general
European  interest  in  the  field  of  active  European  citizenship  or  an  objective
forming part of the European Union's policy in this area (parts 1 and 2),

– 

or a grant to co-finance a specific action in this area (part 3).

Actions  of  civil  society  bodies  and  other  structures  such  as  municipalities  and
organisations  of  such  bodies  working  at  European  level  in  the  field  of  active
citizenship  which  may  contribute  to  supporting  Community  activity  and  making  it
more effective are, in particular:

– 

– 

– 

– 

– 

– 

– 

multinational cooperation actions at European level;

meetings and debates among citizens on themes of European interest, such as
the values, objectives, powers, policies and institutions of the European Union;

informal reflection, education and training projects;

actions promoting citizens' participation and initiative;

exchanges between citizens and their organisations;

dissemination of information on Community action;

preparation, back-up and evaluation of the actions funded.

The main activities of the Platform of European Social NGOs are as follows:

– 

– 

– 

helping  to  shape  EU  policies  on  matters  of  common  interest  to  its  members,
especially in connection with social rights, EU social policies and programmes
and civil dialogue;

keeping  its  members  informed  of  the  development  of  Community  policy
relevant  to  them,  facilitating  the  process  of  dialogue  and  consultation  of  its
members  with  the  EU  institutions  and,  through  its  members,  relaying  these
activities at national level;

promoting dialogue with other groupings working on issues of common interest
(social  partners,  other  European  groupings  of  NGOs,  NGOs  in  the  candidate
countries, etc.);

11

– 

strengthening  social  NGOs  in  the  European  Union  and  in  the  candidate
countries, e.g. by exchange of experience, practice and information among the
members of the Platform.

The main activities of the European Council on Refugees and Exiles are as follows:

– 

– 

– 

– 

– 

– 

– 

– 

representing  the  organisations  of  refugees,  asylum  seekers  and  displaced
persons vis-à-vis the European Union;

coordinating the positions of its members vis-à-vis the European Union;

relaying information on refugees, asylum seekers and displaced persons to the
European institutions;

relaying information from the European Union to national councils of refugees
and non-governmental organisations;

contributing to the exchange of information and good practice;

engaging  in  discussion  and  reflection  on  refugees,  asylum  seekers  and
displaced persons in Europe and on the European Union's action to assist such
persons;

raising  European  public  awareness 
organisations;

through 

the  network  of  member

promoting  participation  and  initiative  on  the  part  of  refugees,  asylum  seekers
and displaced persons.

The purpose of the Association of the Councils of State and Supreme Administrative
Jurisdictions  of  the  European  Union  is  to  coordinate  and  relay  to  the  public  the
judicial  decisions  of  the  Councils  of  State  with  regard  to  Community  law  and  to
facilitate the pooling  of methods of transposing and implementing European  law  at
national level.

This  programme  also  covers  the  Commission's  actions  relating  to  the  creation,
promotion  and  management  of  the  "think  tanks"  operating  in  the  field  of  active
citizenship and European integration and the organisation of related events.

2.

2.1.

IMPLEMENTATION OF THE ACTIVITIES SUPPORTED

The  activities  carried  out  by  the  bodies  eligible  for  Community  funding  under  the
programme fall within one of the following areas:

2.1.1.

Part  1:  permanent  work  programmes  of  the  following  bodies  pursuing  an  aim  of
general European interest in the field of active European citizenship:

– 

– 

– 

"Our Europe" Association

Jean Monnet House

Robert Schuman House

12

– 

– 

– 

Platform of European Social NGOs

European Council on Refugees and Exiles (ECRE)

Association of the Councils of State and Supreme Administrative Jurisdictions
of the European Union

2.1.2.

Part 2: permanent work programme of a body pursuing an aim of general European
interest in the field of active European citizenship or an objective forming part of the
European Union's policy in this area.

This may relate to:

– 

– 

– 

a non-profit body working to assist citizens active in these bodies;

a  European  multiplier  network  of  non-profit  bodies  active  in  the  states
participating  in  the  programme  and  promoting  the  principles  and  policies
contributing to the objectives in this area;

a  body  pursuing  an  objective  forming  part  of  the  European  Union's  policy  in
the field of active citizenship.

An annual operating grant may be awarded to support the conduct of the permanent
work programme of such a body.

2.1.3.

Part 3:

a)

b)

actions in the field  of  active  European  citizenship,  conducted  in  particular  by
non-governmental  organisations,  associations  and  federations  of  European
interest or cross-industry trade unions; by way of derogation from Article 114
of  Council  Regulation  (EC,  Euratom)  No  1605/2002  of  25  June  2002,  cross-
industry trade unions participating in the European social dialogue are eligible
under this part even if they do not have legal personality;

actions  to  promote  town  twinning  instigated  by  municipalities,  local  and
regional  communities  and  bodies, 
local  and  regional  authorities  and
organisations thereof.

2.2.

Having  regard  to  the  quality  and  quantity  of  funding  applications,  the  following
guidelines shall be taken into account when allocating the programme's resources:

– 

– 

resources to be committed under part 3a shall not be less than 20 per cent of the
annual budget available for this programme;

resources to be committed under part  3b shall  not be less than 40 per  cent of
the annual budget available for this programme.

13

3.

3.1.

SELECTION OF BENEFICIARIES

In  order  to  award  the  grants  under  part  2  of  the  programme,  the  Commission  shall
publish  calls  for  proposals.  However,  the  Commission  may  award  these  grants
without  publication  of  a  call  for  proposals  when  the  budget  heading  names  a
beneficiary explicitely. It may proceed in the same manner when the budget identifies
beneficiaries  and  the  amounts  allocated  to  each  of  them,  if  the  total  amount  of  the
budget line concerned is entirely pre-assigned by budgetary authority. In both cases,
all  other  requirements  of  the  Financial  Regulation,  its  Implementing  Rules  end  the
basic act apply.

When  a  call  is  published,  any  priorities  as  to  the  themes  and  types  of  activity
contributing to the general objective of the programme may be indicated, and if the
activities are of multiannual duration, this may also be stated.

3.2.

The bodies receiving grants under part 3 of the programme shall be selected on the
basis  of  calls  for  proposals.  As  regards  cross-industry  trade  unions  participating  in
the European social dialogue, the call for proposals may take the form of a restricted
invitation.

4.

CRITERIA FOR THE ASSESSMENT OF FUNDING APPLICATIONS

Funding applications shall be assessed in the light of:

– 

– 

– 

– 

– 

– 

consistency with the programme objectives;

quality of the planned activities;

likely multiplier effect on the public of these activities;

geographic impact of the activities carried out;

citizen involvement in the organisation of the bodies concerned;

cost/benefit ratio of the activity proposed.

5.

5.1

5.2

FUNDING AND ELIGIBLE EXPENDITURE

Under part 1, the eligible expenditure of the bodies in question comprises operating
costs and expenses for carrying out their actions.

Grants to these bodies shall not fund all their eligible expenditure in the calendar year
for which they are awarded: at least 10 per cent of the  bodies' budgets must be  co-
financed from non-Community sources. Such co-financing may be partly contributed
in kind, provided the contribution is valued at no more than the cost actually incurred
and evidenced by accounting documents or the cost generally obtaining on the market
in question.

14

5.3

5.4

5.5

5.6

Pursuant  to  Article  113(2)  of  Council  Regulation  (EC,  Euratom)  No  1605/2002
of 25 June 2002, the principle of gradual reduction shall not apply to operating grants
to  these  bodies,  since  they  are  bodies  pursuing  an  objective  of  general  European
interest.

Under  part  2,  the  only  costs  to  be  taken  into  account  in  determining  the  operating
grant shall be those necessary for the proper conduct of the normal activities of the
body selected, in particular personnel costs, overheads (rental and property charges,
equipment,  office  supplies,  telecommunications,  postal  charges,  etc.),  costs  of
internal meetings, publication, information and dissemination costs and costs directly
linked to the body's activities.

An  operating  grant  under  part  2  of  the  Annex  shall  not  fund  all  the  body's  eligible
expenditure in the calendar year for which it is awarded. At least 20 per cent of the
budgets of the bodies covered by this part must be co-financed from non-Community
sources.  Such  co-financing  may  be  partly  contributed  in  kind,  provided  the
contribution  is  valued  at  no  more  than  the  cost  actually  incurred  and  evidenced  by
accounting documents or the cost generally obtaining on the market in question.

Pursuant  to  Article  113(2)  of  Council  Regulation  (EC,  Euratom)  No  1605/2002
of 25 June  2002,  operating  grants  so  awarded,  if  renewed,  shall  be  gradually
decreased. This reduction shall apply from the third year onwards, at a rate of 2.5 per
cent per year. In order to observe this rule, which applies without prejudice to the co-
financing  rule  mentioned  above,  the  percentage  of  Community  co-financing
corresponding  to  the  grant  awarded  for  a  given  financial  year  shall  be  at
least 2.5 points  below  the  percentage  of  Community  co-financing  corresponding  to
the grant awarded for the previous financial year.

5.7

For the award of grants under part 3, fixed rates may be applied for organisation costs
and travel expenses.

6.

MANAGEMENT OF THE PROGRAMME

In  the  light  of  a  cost/benefit  analysis,  the  Commission  may  decide  to  entrust  all  or
part of the tasks of managing the programme to an executive agency, in conformity
with  Article  55  of  the  Financial  Regulation  applicable  to  the  general  budget  of  the
European  Communities;  it  may  also  have  recourse  to  experts  and  incur  any  other
expenditure on technical and administrative assistance, not involving the exercise of
public  authority,  outsourced  under  ad  hoc  service  contracts.  It  may  also  finance
studies and organise meetings of experts likely to facilitate the implementation of the
programme,  and  undertake  information,  publication  and  dissemination  actions
directly linked to the achievement of the programme's objective.

7.

7.1

CHECKS AND AUDITS

The beneficiary of an operating grant shall keep available for the Commission all the
the  audited  financial  statement,  regarding
supporting  documents, 
expenditure  incurred  during  the  grant  year,  for  a  period  of  five  years  following  the
last  payment.  The  beneficiary  of  a  grant  shall  ensure  that,  where  applicable,

including 

15

7.2

7.3

7.4

7.5

supporting documents in the possession of partners or members be made available to
the Commission.

The Commission may have an audit of the  use made of the grant carried out either
directly  by  its  own  staff  or  by  any  other  qualified  outside  body  of  its  choice.  Such
audits may be carried out throughout the lifetime of the agreement and for a period of
five  years  from  the  date  of  payment  of  the  balance.  Where  appropriate,  the  audit
findings may lead to recovery decisions by the Commission.

Commission  staff  and  outside  personnel  authorised  by  the  Commission  shall  have
appropriate  right  of  access,  in  particular  to  the  beneficiary's  offices  and  to  all  the
information,  including information  in  electronic format, needed in  order  to  conduct
such audits.

The Court of Auditors and the European Anti-Fraud Office (OLAF) shall enjoy  the
same rights, especially of access, as the Commission.

In  order  to  protect  the  European  Communities'  financial  interests  against  fraud  and
other  irregularities,  the  Commission  may  carry  out  on-the-spot  checks  and
Council
inspections 
Regulation (Euratom, EC)  No  2185/967.  Where  necessary,  investigations  shall  be
conducted by the European  Anti-Fraud Office  (OLAF)  and  these  shall  be  governed
by Regulation (EC) No 1073/1999 of the European Parliament and of the Council8.

accordance  with 

programme 

under 

this 

in 

7

8

OJ L 292, 15.11.1996, p. 2.
OJ L 136, 31.5.1999, p. 1.

16

                                                
FINANCIAL STATEMENT

Policy  areas:  1. Education  and  culture,  2. Employment  and  social  affairs,  3. Justice  and
home affairs

Activities:  1. Dialogue  with  citizens,  2. Promoting  an  inclusive  society,  3. Immigration,
asylum and visas

TITLE OF ACTION

COMMUNITY  ACTION  PROGRAMME  TO  PROMOTE  ACTIVE  EUROPEAN  CITIZENSHIP  (CIVIC
PARTICIPATION)

1.

BUDGET LINES + HEADINGS

15.06.01.02 (ex-A-3020) "Our Europe" Association

15.06.01.03 (ex-A-3021) European think tanks and organisations advancing the idea of
Europe

15.06.01.04 (ex-A-3024) Associations and federations of European interest

15.06.01.05 (ex-A-3026) European think tanks

15.06.01.06 (ex-A-3036) Jean Monnet House and Robert Schuman House

15.06.01.07 (ex-A-321) Town-twinning schemes in the European Union

15.01.04.18  Town-twinning  schemes  in  the  European  Union  –  expenditure  on
administrative management

all  these  lines  pertaining  to  the  activity  "Dialogue  with  citizens"  and  covered  by
heading 5 of the financial perspective up to 2006

18.06.03 (ex-A-3016) Association of the Councils of State and Supreme Administrative
Jurisdictions of the European Union

18.03.01 (ex-A-3030) European Council on Refugees and Exiles

line pertaining to the area "Justice  and home affairs" and covered by  heading  5  of the
financial perspective up to 2006

15.06.01.01 (ex-B3-305 in part) Measures for civil society; line pertaining to the activity
"Dialogue  with  citizens"  and  covered  by  heading  3  of  the  financial  perspective  up  to
2006

17

15.01.04.12  (ex-B3-305A  in  part)  Measures  for  civil  society  and  visits  to  the
Commission  –  Expenditure  on  administrative  management;  line  pertaining  to  the
activity "Dialogue with citizens" and covered by heading 3 of the financial perspective
up to 2006

04.04.09  (ex-B3-4105  and  ex-B5-803,  in  part)  Support  for  the  running  costs  of  the
Platform  of  European  Social  NGOs,  line  pertaining  to  the  activity  "Promoting  an
inclusive society" and covered by heading 3 of the financial perspective up to 2006.

2.

2.1

OVERALL FIGURES

Total  allocation  for  action  (Part  B):  commitment  appropriations  EUR 113.092
million

2.2

Period of application:

2004–2008

2.3

a) 

Overall multiannual estimate of expenditure

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

EUR million (to the third decimal place)

Heading 5

Commitment
appropriations

Payment
appropriations 9

Heading 3

Commitment
appropriations

Payment
appropriations

2004

2005

2006

2006

2008

Total

2009
and
foll.
fin.
years

14.540

16.168

17.788

17.918

18.046

84.460

EUR million (to the third decimal place)

2004

2005

2006

2006

2008

Total

2009
and
foll.
fin.
years

4.810

4.822

4.836

4.850

4.864

24.182

3.858

4.822

4.822

4.822

4.822

0.964

24.110

9

Ces crédits seront gérés comme des crédits non dissociés.

18

                                                
b) 

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

heading 5 10

CA

PA

heading 3

CA

PA

heading 5

Subtotal a+b

CA

PA

heading 3

Subtotal a+b

CA

PA

pm

0.550

0.550

0.550

0.550

2.200

0.450

0.450

0.450

0.450

0.450

0.450

0.450

0.450

0.450

0.450

2.250

2.250

14.540

16.718

18.338

18.468

18.596

86.660

5.260

5.272

5.286

5.300

5.314

26.432

4.308

5.272

5.272

5.272

5.272

0.964

26.360

c) 

Overall  financial  impact  of  human  resources  and  other  administrative  expenditure
(see points 7.2 and 7.3)

CA/PA

2.961

2.411

2.411

2.411

2.411

12.605

TOTAL a+b+c

CA

PA

10

The resources are estimated on the assumption that an executive agency will be set up and will be deducted
from the resources currently allocated as part of the Commission's administrative expenditure.

19

                                                
2.4

Compatibility with financial programming and financial perspective

X

Proposal compatible with the existing financial programming

(cid:1) Proposal  will  entail  reprogramming  of  the  relevant  heading  in  the  financial

perspective.

(cid:1) This may entail application of the provisions of the Interinstitutional Agreement.

2.5

Financial impact on revenue

X

No financial implications (involves technical aspects regarding implementation of
a measure)

(cid:1) Proposal has financial impact – the effect on revenue is as follows:

3.

BUDGET CHARACTERISTICS

Type of expenditure

New

EFTA
participation

Participation
applicant
countries

Heading
financial
perspective

Comp/
Non-comp

Diff/Non-
diff

Comp/
Non-comp

Diff/Non-
diff

YES/NO

YES/NO

YES/NO

N° 3

YES/NO

YES/NO

YES/NO

N° 5

Note: the action is new in this form; however, it follows on from existing Community operations
which have existed in another form for several years and its main purpose is to provide a legal
basis  for  these  operations.  It  relates  to  the  old  headings  A-3016,  A-3020,  A-3021,  A-3024,
A-3026, A-3030, A-3036, A-321, B3-305, B3-4105 and B5-803 (the last three in part).

4.

LEGAL BASIS

Proposal for a Decision of the European Parliament and of the Council, adopted by the
Commission on ...

5.

5.1

DESCRIPTION AND GROUNDS

Need for Community intervention

5.1.1

Objectives pursued

In  addition  to  the  Treaty,  which  establishes  European  citizenship,  various  recent
statements stress the need to promote active citizenship, especially of young people: the
European Council of Nice, in its Declaration 23, "recognises the need to improve and to
monitor the democratic legitimacy and transparency of the Union and its institutions, in
order  to  bring  them  closer  to  the  citizens  of  the  Member  States";  the  European
Parliament,  the  Council  and  the  Commission,  in  the  preamble  to  the  Charter  of

20

Fundamental  Rights  of  the  European  Union,  state  that  "the  Union  contributes  to  the
preservation and the development of these common values while respecting the diversity
of the cultures and traditions of the peoples of Europe"; the Laeken Declaration annexed
to  the  conclusions  of  the  European  Council  of  14  and  15  December  2001  asserts  that
one  of  the  basic  challenges  to  be  resolved  by  the  European  Union  is  "how  to  bring
citizens,  and  primarily  the  young,  closer  to  the  European  design  and  the  European
institutions";  the  Commission's  White  Paper  on  Governance  stresses  the  principle  of
citizen participation in devising and carrying out policy, of involvement of civil society
and its component organisations.

Moreover,  the  Community  and  the  Member  States  have  as  their  objectives  the
promotion  of  employment,  improved  living  and  working  conditions,  proper  social
protection, the development of human resources with a view to lasting high employment
and the combating of exclusion.

The  preparation  of  a  common  policy  on  asylum,  including  common  European
arrangements  for  asylum,  is  a  constituent  part  of  the  European  Union's  objective  of
establishing  progressively  an  area  of  freedom,  security  and  justice  open  to  those  who,
forced by circumstances, legitimately seek protection in the European Union.

The  Community  budget  is  in  fact  already  providing  support  for  promoting  active
European  citizenship  under  headings  in  Part  A  of  the  budget,  and  in  particular  that
which finances town twinning. This support has been provided without any legal basis,
under budgetary headings entered in the Commission's administrative expenditure. The
introduction,  as  from  2004,  of  a  budgetary  nomenclature  in  accordance  with  ABB
principles  makes  it  necessary  to  provide  a  proper  legal  basis  for  these  operations,  as
agreed  by  the  European  Parliament,  the  Council  and  the  Commission  when  the  new
Financial Regulation was adopted.

In  recent  years,  the  Community  budget  has  also  made  it  possible  to  provide  support
without  a  legal  basis  for  measures  for  civil  society  (through  NGOs  and  trade-union
organisations) and for the Platform of European Social NGOs. It is considered desirable
to group this support with the other actions for which the present legal basis is proposed.

This  proposal,  which  is  primarily  informed  by  technical  considerations,  thus  seeks  to
place on a solid legal footing grants hitherto awarded without a legal basis.

5.1.2 Measures taken in connection with ex ante evaluation

This  proposal  essentially  addresses  the  technical  need  to  provide  a  legal  basis  for
operating  grants  which  have  traditionally  been  paid  in  this  area  under  Part  A  of  the
budget, so following up the joint statement made by the three institutions when the new
Financial Regulation was adopted.

5.2

Actions envisaged and budget intervention arrangements

The  proposal  is  aimed  at  supporting  two  types  of  operation:  grants  to  co-finance  the
operating costs of a number of bodies active in the field of European citizenship; grants
to support actions contributing to achieving the Union's European citizenship objectives.

The  operating grants are  available  to various bodies  engaged  in dialogue  with  citizens
("Our  Europe"  Association,  Jean  Monnet  House  and  Robert  Schuman  House),  in  the
social  field  (Platform  of  European  Social  NGOs)  or  in  the  field  of  justice  and  home

21

affairs (Association of the Councils of State and Supreme Administrative Jurisdictions
of  the  European  Union,  European  Council  on  Refugees  and  Exiles).  Operating  grants
may  also  be  awarded  to  other  European  bodies  promoting  active  citizenship  (think
tanks, associations of European interest, etc.).

Support  for  individual  actions  is  aimed  at  the  promotion  of  European  citizenship
through two types of action: active European citizenship actions conducted in particular
by non-governmental organisations, associations and federations of European interest or
cross-industry 
instigated  by
municipalities, local and regional communities and bodies, local and regional authorities
and organisations thereof.

trade  unions;  actions 

to  promote 

twinning 

town 

5.3

Implementation arrangements

A feasibility study is in hand on the establishment of an executive agency to assist the
Commission  in  the  field  of  education  and  culture.  If,  in  the  light  of  a  cost/benefit
analysis, the Commission decides to set up such an agency, it may be involved in some
of the tasks of managing the programme, in conformity with Article 55 of the Financial
Regulation applicable to the general budget of the European Communities.

This possibility is being considered at the general policy level; this is the level at which
an  appraisal  will  be  made  of  the  implications  of  such  an  approach  for  the  resources
required to manage the programme within the Commission. At this stage, the working
hypothesis is that this programme will contribute to the operating costs of the executive
agency envisaged (by means of the administrative expenditure line associated with the
budgetary heading for the programme).

6.

6.1

FINANCIAL IMPACT

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

6.1.1

Financial intervention

Commitments in EUR million (to the third decimal place)

Breakdown

2004

2005

2006

2007

2008

Part 1: – heading 5

1.725

1.778

1.818

1.868

1.918

Part 1: – heading 3

0.660

0.672

0.686

0.700

0.714

Part 2: – heading 5

2.515

2.570

2.620

2.670

2.718

Part 3: – heading 5

10.300

11.820

13.350

13.380

13.410

Part 3: – heading 3

4.150

4.150

4.150

4.150

4.150

Total

9.107

3.432

13.093

62.260

20.750

TOTAL

19.350

20.990

22.624

22.768

22.910

108.642

22

6.1.2

Technical  and  administrative  assistance,  support  expenditure  and  IT  expenditure
(commitment appropriations)

2004

2005

2006

Total

1)Technical and
administrative assistance:

Technical assistance

Other technical and
administrative assistance:
- intra-muros:
- extra-muros:
of  which  for  construction
and 
of
maintenance 
computerised  management
systems:

Subtotal 1

2) Support expenditure:

a) Studies

b) Meetings of experts

c) Information and
publications

Subtotal 2 – heading 3

0.450

0.450

0.450

0.450

0.450

3) Contribution to an
executive agency

Subtotal 3 – heading 5

p.m.

TOTAL

0.450

0.550

1.000

0.550

1.000

0.550

1.000

0.550

1.000

2.250

2.200

4.450

6.2

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

Breakdown

Commitments in EUR million (to the third decimal place)

Type
of outputs
(projects, files,
etc. )
1

Number of
outputs
(total for years
1…n)
2

Average unit
cost

Total cost
(total for years
1…n)

3

4=(2X3)

Part 1:

Part 2:

Part 3:

TOTAL COST

Op. grants

Op. grants

Action grants

30

125

0.415

0.105

12.539

13.093

83.010
108.642

The amount proposed takes account of the budgetary constraints, in particular those applying to
heading 5, which will be the main source of funding.

In this context, it has been assumed as a general rule that grants to the bodies designated in the
Decision establishing the programme (part 1) will increase by 2 per cent per year.

23

7.

IMPACT ON STAFF AND ADMINISTRATIVE EXPENDITURE

Human resource and administrative needs will be covered by the managing DG's allocation under
the annual allocation procedure.

7.1

Impact on human resources

These are existing resources.

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

Number of
permanent posts

Number of
temporary posts

Description of tasks
deriving from the measure

Total

6
4
11

21

1

1

6
5
11
13

35

If necessary, a fuller description
of the tasks may be annexed.

expert 

national 

1 
on
detachment and 12 auxiliary
staff

Type of job

Permanent
officials or
temporary staff

A
B
C

Other human
resources

Total

7.2

Overall financial impact of human resources

Type of human resources

Amounts EUR

Method of calculation *

Officials

Temporary agents

Other human resources

(indicate budget heading)

National expert on detachment

Auxiliary staff

2 268 000

108 000

45 000

540 000

21 x EUR 108 000

1 x EUR 108 000

1 x EUR 45 000

1 x EUR 108 000

Total

2 961 000

The  amounts  represent  total  expenditure  for  12  months,  without  assistance  from  an  executive
agency;  if  assistance  were  provided  by  an  executive  agency  from  2005  onwards,  the  internal
Commission resources used to manage the action would be reduced accordingly (this is assumed
in the total shown below).

7.3

Other administrative expenditure deriving from the measure

Amounts EUR

Method of calculation

Budget heading
(number and heading)

Overall allocation (Title A7)
A0701 – Missions
A07030 – Meetings
A07031 – Compulsory committees (1)
A07032 – Non-compulsory committees (1)
A07040 – Conferences
A0705 – Studies and consultations
… Other expenditure (please specify)

Information systems (A-5001/A-4300)

Other expenditure - Part A (please specify)

Total

24

The  amounts  represent  total  expenditure  for  12  months,  without  assistance  from  an  executive
agency;  if  assistance  were  provided  by  an  executive  agency  from  2005  onwards,  the  internal
Commission resources used to manage the action would be reduced accordingly (this is assumed
in the total shown below).

(1) Specify the type of committee and the group to which it belongs.

I.
II.
III.

Annual total (7.2 + 7.3)
Duration of action
Total cost of the measure (I x II)

EUR 2 961 000
5 years
EUR 12 605 000

8.

8.1

MONITORING AND EVALUATION

Monitoring arrangements

Article 7 of the Decision lays down the arrangements for evaluation of the programme
(interim evaluation, before any decision on renewal of the programme; final evaluation).

8.2

Arrangements and schedule for the planned evaluation

No later than 31 December 2007, the Commission will submit a report to the European
Parliament and the Council on the achievement of the programme's objectives and will,
if appropriate, make proposals for any adjustment to be made with a view to continuing
or  not  continuing  the  programme.  This  report  will  be  based  on  an  external  evaluation
report which must be available by the end of 2006 and will at least examine the overall
relevance  and  coherence  of  the  programme,  its  practical  effectiveness  (in  terms  of
preparation, selection and implementation of the actions), and the overall and individual
effectiveness  of  the  various  actions  (in  terms  of  achieving  the  objectives  set  out  in
Article 1 and in the Annex).

The  Council,  in  accordance  with  the  Treaty,  will  decide  on  the  continuation  of  the
programme  as  from  1 January  2009.  Before  presenting  proposals  to  this  end,  the
Commission will have an updated external evaluation made of the programme and will
bear the results in mind in its proposals.

No  later  than  31 December  2009,  the  Commission  will  present  to  the  European
Parliament and the Council a report on the achievement of the programme's objectives.
This report will be based on the results of the external appraisal and will look into the
results  obtained  by  the  beneficiaries,  more  especially  from  the  point  of  view  of  the
effectiveness and  efficiency  of  the  various  actions  (in  overall  and  individual  terms)  in
achieving the objectives set out in Article 1 and in the Annex.

9.

FRAUD PREVENTION MEASURES

All  contracts,  agreements  and  legal  undertakings  entered  into  by  the  Commission  and
the beneficiaries provide for checks to be carried out by the Commission or the Court of
Auditors on the premises of a direct beneficiary of a Community grant, and for evidence
to  be  required  of  any  expenditure  under  such  contracts,  agreements  and  legal
undertakings, during the five years after the end of the contract period. Beneficiaries are
required  to  submit  financial  reports  and  accounts,  which  are  analysed  for  content  and
eligibility of expenditure in the light of the objective of Community funding, bearing in

25

mind  the  contractual  obligations  and  the  principles  of  economy  and  sound  financial
management.

Attached  to  the  financial  agreements  are  administrative  and  financial  information
intended  inter  alia  to  specify  expenditure  which  is  eligible  under  these  agreements.
Where  appropriate,  Community  coverage  of  certain  cost  elements  will  be  limited  to
items  which  are  real,  identifiable  and  verifiable  in  the  beneficiary's  book-keeping
arrangements,  so  as  to  facilitate  checking  and  auditing  (and  evaluation  for  selection
purposes) of projects in receipt of funding.

26