Proposal for a Decision of the European Parliament and of the Council on Interoperable Delivery of pan-European eGovernment Services to Public Administrations, Businesses and Citizens (IDABC)
Date: 2003-07-08
Institutions: European Commission
Subjects: Community body, administrative cooperation, data transmission, electronic government, exchange of information, public administration, telematics, trans-European network, transmission network

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 8.7.2003
COM(2003) 406 final

2003/0147 (COD)

Proposal for a

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on Interoperable Delivery of pan-European eGovernment Services to Public
Administrations, Businesses and Citizens (IDABC)

(presented by the Commission)

1.

2.

3.

EXPLANATORY MEMORANDUM

The  challenges  facing  Europe  today,  such  as  enlargement,  sustainable  economic
growth,  social  development,  safeguarding  security  and  overcoming  the  distance
between  the  European  Union  and  its  citizens,  require  joint  policy  responses  at  the
European level, with increased emphasis on policies that respond in the best way to
citizens’ and businesses’ needs and  expectations.  They  also  require  governments to
join  forces  as  far  as  the  implementation  of  common  policies  is  concerning.  The
implementation  of  a  broad  range  of  legislative  acts  is,  in  fact,  the  shared
responsibility of the Member States and the European Commission and requires the
development  of  new  ways  of  working  together.  Networking  across  borders,  by
making  use  of  Information  Technologies  (IT),  has  become  the  key  instrument  to
bringing  public  administrations  together  and  supporting  their  co-operative  efforts
towards a modern, enlarged and secure Europe.

In the context of the eEurope initiative, launched as part of the Lisbon strategy and
underpinning  the  strategy  of  the  European  Union  in  the  field  of  eGovernment,
governments all over Europe have been actively engaged in improving their way of
working with their citizens and enterprises, using IT to deliver services that are safer,
quicker and better, easier to use and more accessible. It is important that the national
efforts take place giving the necessary consideration to the priorities of the European
Union,  as  otherwise  there  would  be  a  risk  that  the  development  of  eGovernment
services  may  inadvertently  result  in  the  erection  of  barriers  to  the  continued
development of the Internal Market and the associated freedoms of movement. This
would  happen  if,  for  example,  citizens  and  businesses  that  need  to  interact
electronically  with  public  administrations  in  Member  States  other  than  their  own,
were unable to do so. For the European Union, this would mean failing to promote
mobility  across  national  borders,  as  a  means  of  both  creating  a  competitive  and
flexible workforce and forging awareness of European citizenship and identity.

The second phase of the Interchange of Data between Administrations Programme1
(hereinafter  IDA  II),  expiring  on  31  December  2004,  has  been  instrumental  to
achieve  a  steady  progress  in  the  co-operation  between  European  Commission  and
Member  States  public  administrations,  as  well  as  between  Community
institutions.With  respect  to  enlargement,  it  should  be  recalled  that  IDA  has  been
identified by the Commission in its annual policy strategy for 2003 as contributing to
the  application  of  Community  legislation,  programmes  and  surveillance  procedures
and  the  open  method  of  co-ordination  in  the  new  Member  States.  The  programme
has in fact provided a forum for exchange  of ideas and experiences,  and has led to
the establishment of a wide portfolio of operational trans-European networks, which
have underpinned the development of pan-European eGovernment services, notably
between  national  public  administrations  as  well  as  between  these,  the  European
Commission and the other European Union Institutions. These are now being opened
up  to  the  participation  of  the  Acceeding  Countries  and  the  Candidate  Countries,
hence  facilitating  the  implementation  of  the  “acquis  communautaire”  by  these
countries.

1

Adopted  by  the  European  Parliament  and  the  Council  in  their  Decisions  No  1719/1999/EC  and
1720/1999/EC  of  12  July  1999  (OJ  L  203,  3.8.1999,  pp.  1  and  9)  as  amended  by  Decisions  No
2046/2002/EC and 2045/2002/EC of 21 October 2002 (OJ L 316, 20.11.2002, pp. 4 and 1)

2

                                                
4.

5.

6.

The  IDA  II  Programme  has  been  effective  and  efficient  to  lend  support  to  the
execution  of  Community  policies  in  traditional  policy  areas  such  as  agriculture,
fisheries, employment, and statistics, as well as to new policy areas, like home  and
justice  affairs,  novel  food  safety,  organic  farming,  communicable  diseases,
environment  and  maritime  safety,  civil  protection,  and  humanitarian  aid.  The
administration of the Internal Market has also received an important boost, notably as
the Programme has contributed to facilitating the mobility of European citizens and
businesses  across  borders.  Apart  from  the  progress  achieved  in  support  of  specific
sectors, such as chemicals, pharmaceuticals and medical devices, a co-ordinated set
of  services  supporting  citizens  and  businesses  is  being  put  in  place.  This
encompasses the delivery  of  information services  (notably  via  the  portal  of  the  EU
administration,  also  known  as  “public-services.eu.int”  and  currently  in  its  pilot
phase,  and  specific  portals  like  PLOTEUS  on  learning  opportunities)  and  the
provision  of  assistance  in  cases  of  misapplication  of  Community  legislation  by  the
Member States (via the SOLVIT network). The necessary synergies and integration
with  other  relevant  initiatives  from  the  European  Commission  (like  Dialogue  with
Citizens,  Dialogue  with  Business,  Signpost,  the  Euro  Info  Centres)  are  also  in  the
process of being addressed.

Finally,  IDA  II  has  been  providing  several  administrative  sectors  with  generic
services  and  common  tools,  comprising  guidelines,  a  communication  platform
known as TESTA and characterised by a high level of security and availability, and
several  complementary  software  tools  aimed  at  achieving  interoperability  between
the back-office administrative systems and processes, as well as between back- and
front-office services. In several sectoral policies, the “IDA way“ has  contributed to
achieving results faster (the best example being the Home and Justice Affairs policy
area),  with  higher  quality  and  meeting  business  requirements,  capitalising  on  the
availability of these services and tools and adding value over what could be obtained
from separate and unharmonised implementations. Last but not least, the Programme
has  also  contributed  to  promote  the  dialogue  between  public  administrations  on
strategic issues like open source software and electronic procurement and to launch
related co-operative actions.

The  Action  Plan  for  eEurope  2005,  endorsed  by  the  European  Council  meeting  in
Seville  in  June  2002,  in  particular  the  chapter  on  eGovernment,  underlines  the
importance of the Interchange of Data between Administrations (IDA) programme in
fostering  the  establishment  of  pan-European  eGovernment  services  in  support  of
cross-border activities thus complementing and providing a framework for initiatives
regarding  eGoverment  at  national,  regional  and  local  levels.  In  this  context,  the
Commission  now  proposes  a  follow-on  Programme  called  IDABC  (Interoperable
Delivery  of  pan-European  eGovernment  Services  to  Public  Administrations,
Businesses  and  Citizens)  which  will  ensure  continuity,  as  many  of  the  IDA  II
projects of common interest  and horizontal measures most recently undertaken will
need  to  evolve  from  the  current  preparatory  and  feasibility  phases  to  the  full
deployment  of  the  corresponding  networks.  But,  much  more  importantly,  the
proposal for the succeeding Programme, positioned as an eGovernment programme,
comes  from  the  consideration  that  eGovernment  is  today  a  key  vehicle  for  the
implementation  and  achievement  of  higher  policy  objectives.  In  this  context  the
deployment  of  trans-European  telematic  networks  should  not  be  considered  as  the
end,  but  as  the  means  to  achieve  interoperable  information  and  interactive
eGovernment  services  at  the  pan-European  level,  building  on  and  extending  to

3

7.

8.

9.

10.

11.

citizens  and  businesses  the  benefits  resulting  from  the  co-operation  between  public
administrations across Europe.

In  the  timeframe  covered  by  the  new  Programme  (2005-2009),  the  enlarged
European Union will have to make a steady progress towards the achievement of the
Lisbon objectives. This and the other priorities of the European Union will underpin
major  challenges,  in  particular  increases  in  mobility  across  borders,  which  will
require  increased  co-operation  between  public  administrations  and  reinforce
exchanges  of  data  and  services  across  borders.  Even  more  importantly,  at  a  time
when  the  Convention  has  drawn  up  a  Draft  Constitutional  Treaty  for  the  European
Union,  IDABC  would  be  a  particularly  suitable  programme  to  contribute  to  the
progress  of  the  construction  of  the  European  Union  via  the  setting  up  of  pan-
European  eGovernment  services  enabling  citizens’  and  businesses’  more  direct
participation in this construction.

the  delivery  of  services 

The  new  Programme  will  act,  as  for  the  IDA  II  Programme,  in  support  of  the
implementation  of  acts  of  Community  legislation  and  contribute  to  improving
interinstitutional  co-operation,  with 
from  public
administration to public administration as its core business. This not only because in
a  number  of  policies,  the  implementation  of  the  legal  acts  only  concerns  the  co-
operation between the public administrations, but also because, without co-operation
at the administrative level, there would be no way to develop pan-European services
to  citizens  and  businesses.  Among  other  considerations,  this  approach  allows  the
Programme to have a very well defined remit, and act in full complementarity with
the other eGovernment related Community Programmes.

Drawing on the unique combination of insight and expertise gathered in IDA II from
different  departments  of  Member  States,  Community  institutions  and  European
Agencies, the new Programme is expected to strengthen its role in the development
of  policies,  notably  on  interoperability  and  eGovernment  related  issues,  and  will
the
continue  providing  guidance  and 
development of pan-European eGovernment services.

infrastructure  services  underpinning 

The new Programme will comprise two strands, namely projects of Common Interest
in support of sectoral policies and horizontal measures in support of interoperability,
mainly  infrastructure  services.  However,  in  line  with  the  conclusions  of  the  IDA
mid-term  evaluation,  the  procedures  within  the  proposed  new  Programme  will  be
considerably  streamlined  with  respect  to  IDA  II:  only  one  Decision,  similarities
between operational implementations of projects of common interest and horizontal
measures,  simplifying  the  implications  of  double  comitology  and  providing  for
increased decentralisation of responsibility to the sectoral policy areas, allowing the
Programme  management  committee  to  concentrate  more  on  policy  and  strategic
matters.

The  main  objective  of  the  infrastructure  services  is  to  facilitate  interoperability
between  systems,  information  and  processes  at  the  pan-European  level,  as  this  is  a
fundamental requirement from both the technical and the economic perspectives. The
interoperability of the information systems, the sharing and re-use of the information,
and the joining-up of the administrative  processes  are  essential for  the  provision of
high quality, seamless and interactive, user-centric eGovernment services.

4

12.

13.

14.

15.

16.

17.

Interoperability  of  systems,  content,  and  processes  across  different  levels  of
government, from local to European, is also fundamental to achieving services of a
really  pan-European  nature  and  reducing  the  risk  of  fragmentarity  in  eGovernment
developments.

In  order  to  establish  a  dialogue  with  other  stakeholders  representing  regional  and
local  authorities  as  well  as  consumers’  and  businesses’  associations,  an  Advisory
Board might be established by a Commission Decision in the coming months.

With  a  view  to  strengthening  the  selection  of  projects  of  common  interest  and
horizontal  measures  to  be  funded  under  the  Programme,  a  comprehensive  global
implementation plan will be required from each of them. To ensure the viability, the
plan  must  contain  concrete  plans  for  ensuring  the  financial  and  operational
sustainability  of  the  project  during  the  post-implementation  phase.  In  respect  of
horizontal  measures,  the  Programme  foresees  that  the  Commission  in  co-operation
with  the  Management  Committee  defines,  within  two  years  following  the  entering
into force of the Decision establishing the Programme, a mechanism that will ensure
the  financial  sustainability  of  horizontal  measures  related  to  infrastructure  services,
e.g. through public-private co-operation or by transferring some of the services to an
agency.

A  work  programme  covering  the  full  duration  of  the  Programme  is  envisaged  in
order to allow a speedier and smoother execution of projects of common interest, the
duration  of  which  may  normally  not  exceed  four  years.  Budget  is  suggested  to  be
allocated virtually to projects of  common interest and horizontal measures for their
full  duration  and  released  on  achievement  on  milestones  foreseen,  mainly  in  the
global implementation plans.

Having experienced an interest for infrastructure services presently  provided by the
IDA II Programme, e.g. the communication platform TESTA, from sectors working
in areas not comprised by the Treaty establishing the European Community, the new
Programme permits the  use of infrastructure services in the framework  of  common
foreign and security policy and police and judicial co-operation in criminal matters.

The  need  for  pan-European  eGovernment  services  as  well  as  interoperability  in
general, and more specifically in relation to the underlying telematic networks, does
not stop at the borders of the European Union. Therefore, the possibility of extending
the scope of the Programme to third countries as well as international organisations
or  bodies  is  envisaged,  consequently  adding  an  international  dimension  to  the
delivery of eGovernment services.

5

2003/0147 (COD)

Proposal for a

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on Interoperable Delivery of pan-European eGovernment Services to Public
Administrations, Businesses and Citizens (IDABC)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in  particular
Article 156(1) thereof,

Having regard to the proposal from the Commission2,

Having regard to the opinion of the European Economic and Social Committee3,

Having regard to the opinion of the Committee of the Regions4,

Acting in accordance with the procedure laid down in Article 251 of the Treaty5,

Whereas:

(1)

(2)

(3)

In accordance with Article 154 of the Treaty, to help achieve the objectives referred to
in  Article 14  and  Article 158  of  the  Treaty  and  to  enable  citizens  of  the  Union,
economic operators and regional and local communities to derive full benefit from the
setting-up  of  an  area  without  internal  frontiers,  the  Community  contributes  to  the
establishment and development of trans-European networks.

Facilitation  of  the  mobility  of  businesses  and  citizens  across  European  borders
contributes directly to removing the obstacles to the free movement of goods, persons,
services and capital as well as to the free establishment of nationals of a Member State
in the territory of another Member State.

In accordance with article 157 of the Treaty, the Community and the Member States
shall ensure that the conditions necessary for the competitiveness of the Community's
industry exist.

2

3

4

5

OJ C …, …, p. …
OJ C …, …, p. …
OJ C …, …, p. …
OJ C …, …, p. …

6

                                                
(4)

(5)

(6)

(7)

(8)

(9)

By Decisions No 1719/1999/EC6 and No 1720/1999/EC7 the European Parliament and
the Council adopted a series of actions, horizontal measures and guidelines including
the  identification  of  projects  of  common  interest,  with  regard  to  trans-european
networks  for  the  electronic  interchange  of  data  between  administrations  (IDA).  As
those Decisions will expire on the 31 December 2004, it is necessary to provide for a
framework for the follow-up of the IDA programme as set up by these Decisions.

In establishing and implementing a follow-on programme to the IDA programme, due
account should be  taken  of  the  achievements  of  that  programme  and  actions  already
initiated should be allowed to be completed.

The European Council, meeting in Lisbon in March 2000, adopted conclusions aimed
at  preparing  the  transition  of  the  European  Union  by  2010  to  the  world’s  most
competitive,  dynamic,  and  knowledge-based  economy,  capable  of  sustainable
economic growth with more and better jobs end greater social cohesion.

The  European  Council,  meeting  in  Brussels  in  March  2003,  drew  attention  to  the
importance  of  connecting  Europe  and  so  strengthening  the  internal  market  and
underlined  that  electronic  communications  are  a  powerful  engine  for  growth,
competitiveness  and  jobs  in  the  European  Union  and  action  should  be  taken  to
consolidate this strength and to contribute to the achievement of the Lisbon goals; to
this end, it is necessary for Member State public administrations and the Community
institutions  to  access,  exchange  and  process,  by  electronic  means  (“telematic
networks”), increasing amounts of information.

The  elimination  of  obstacles 
to  electronic  communications  between  public
administrations at all levels and with businesses as well as with citizens contributes to
improving  the  European  business  environment,  lowering  the  administrative  burden
and reducing red tape. It may also encourage businesses and citizens of the European
Union to reap the benefits of the information society and to interact electronically with
public administrations.

Enhanced delivery of eGovernment services enables businesses and citizens to interact
with public administrations without having to acquire special Information Technology
(IT)  knowledge,  such  as  e-inclusion,  or  requiring  prior  knowledge  of  the  internal
functional organisation of a public administration.

(10)

The  deployment  of  trans-European  telematic  networks  to  interchange  information
between public administrations should not be considered as the end, but as the means
to achieve interoperable information and interactive eGovernment services at the pan-
European  level,  building  on  and  extending  to  citizens  and  businesses  the  benefits
resulting from the co-operation between public administrations across Europe.

6

7

OJ L 203, 3.8.1999, p. 1. Decision as amended by Decision No 2046/2002/EC (OJ L 316, 20.11.2002,
p. 4).
OJ L 203, 3.8.1999, p. 9. Decision as amended by Decision No 2045/2002/EC (OJ L 316, 20.11.2002,
p. 1)

7

                                                
(11)

(12)

(13)

(14)

Pan-European  eGovernment  services  permit  public  administrations,  businesses  and
citizens  to interact better with public  administrations across  borders.  The  delivery  of
these  services  requires  the  availability  of  efficient,  effective  and  interoperable
information  and  communication  systems  between  public  administrations  as  well  as
interoperable administrative front and back office processes in order to exchange in a
secure manner, understand and process public sector information across Europe.

It is important that the national efforts in support of eGovernment take place giving the
necessary consideration to the priorities of the European Union.

It is essential to maximise the use of standards or publicly available specifications or
open  specifications  for  information  exchange  and  service  integration  to  ensure
seamless  interoperability  and  thereby  increasing  the  benefits  of  pan-European
eGovernment services and the underlying trans-European telematic networks.

The  establishment  of  pan-European  eGovernment  services  and  the  underlying
telematic networks of which the Community is a user or a beneficiary is incumbent on
both the Community and the Member States.

(15)

It  is  essential  to  ensure  close  co-operation  between  the  Member  States  and  the
Community and, where relevant, the Community institutions and stakeholders.

(16) Actions  at  Community  level  should  stimulate  the  successful  development  of
eGovernment  services  at  the  pan-European  level  and  the  associated  commitments
required  at  national,  regional  and  local  level,  taking  due  account  of  the  linguistic
diversity of the Community.

(17) Cross-fertilisation with relevant national, regional and local initiatives and delivery of

eGovernment services within the Member States should be ensured.

(18)

(19)

(20)

(21)

The  Action  Plan  for  eEurope  2005,  endorsed  by  the  European  Council  meeting  in
Seville  in  June  2002,  in  particular  the  chapter  on  eGovernment,  underlines  the
importance of the Interchange of Data between Administrations (IDA) programme in
fostering  the  establishment  of  pan-European  eGovernment  services  in  support  of
cross-border activities thus complementing and providing a framework for  initiatives
regarding eGoverment at national, regional and local levels.

In order to make efficient use of the Community's financial resources, it is necessary
to share the cost of pan-European eGovernment services and the underlying telematic
networks between the Member States and the Community on an equitable basis.

Productivity, responsiveness and flexibility in the establishment and operation of pan-
European  eGovernment  services  and  the  underlying  telematic  networks  can  best  be
achieved  by  embracing  a market-oriented  approach and thus selecting suppliers  on  a
competitive basis  in  a  multi-vendor  environment,  while  ensuring,  where  appropriate,
the operational and financial sustainability ofmeasures.

Pan-European  eGovernment  services  should  be  developed  in  the  context  of  specific
projects of common interest whereas the necessary horizontal measures should be put
in  place  to  support  the  interoperable  delivery  of  these  services  by  establishing  or
enhancing infrastructure services in support of pan-European telematic networks.

8

(22)

(23)

(24)

The  follow-up  of  the  IDA  programme  should  consequently  also  be  open  to
participation  by  the  countries  of  the  European  Economic  Area  and  the  candidate
countries,  and  co-operation  with  other  third  countries  should  be  encouraged.
International  entities  may  take  part  in  the  implementation  of  projects  of  common
interest and horizontal measures at their own costs.

In  order  to  ensure  a  sound  management  of  the  financial  resources  of  the  European
Union  and  to  avoid  needless  proliferation  of  equipment,  repetition  of  investigations
and  diversity  of  approach,  it  should  be  possible  to  use  infrastructure  services
developed  under  the  IDA  programme  or  the  follow-up  to  the  IDA  programme  in  the
framework  of  common  foreign  and  security  policy  and  police  and  judicial  co-
operation  in  criminal  matters,  in  accordance  with  Titles  V  and  VI  of  the  Treaty  on
European Union.

Since  the  objective  of  establishing  pan-European  eGovernment  services  cannot  be
sufficiently achieved by the Member States and can therefore, by reason of the scale
and effects of the action, be better achieved at Community level, the Community may
adopt measures, in accordance with the principle of subsidiarity as set out in Article 5
of  the  Treaty.  In  accordance  with  the  principle  of  proportionality,  as  set  out  in  that
Article, this Decision does not go beyond what is necessary in order to achieve those
objectives,

HAVE DECIDED AS FOLLOWS:

Article 1
Objectives

1.

This Decision establishes a programme for  Interoperable Delivery  of  pan-European
eGovernment  Services 
to  Public  Administrations,  Businesses  and  Citizens
(hereinafter the “IDABC programme”) aimed at promoting the establishment of pan-
European eGovernment services and the development of the underlying interoperable
telematic networks.

2.

The objectives of this Decision are:

(a)

(b)

(c)

to enable the efficient, effective and secure interchange of information between
public administrations, whether national, regional or local, as well as between
such  administrations  and  the  Community  institutions  or  other  entities  as
appropriate, in order for the Member States and the Community to implement,
within  their  respective  areas  of  competence,  the  Community  policies  and
activities referred to in Articles 3 and 4 of the Treaty;

to extend the benefits of the interchange of information as specified under (a)
to businesses and citizens;

to  facilitate  communication  between  the  Community  institutions  and  support
the  Community  decision-making  process  and  develop  the  related  strategic
framework at the pan-European level;

(d)

to  promote  citizens’  and  businesses’  participation  in  the  construction  of  the
European Union;

9

(e)

(f)

(g)

to  achieve  interoperability,  both  within  and  across  different  administrative
sectors and, where appropriate, with businesses and citizens;

to  converge  networks  under  (a),  (b),  and  (c)  towards  a  common  telematic
interface;

to achieve substantial benefits for Member State public administrations and the
Community  in  terms  of  streamlined  operations,  speeded-up  implementations,
security, efficiency, transparency, service culture and responsiveness;

(h)

to  promote  the  spread  of  good  practice  and  encourage  the  development  of
innovative telematic solutions in public administrations.

Article 2
Definitions

For the purposes of this Decision, the following definitions shall apply:

(a)

(b)

(c)

(d)

(e)

(f)

“Telematic  network”  means  a  comprehensive  data-communication  system,
comprising the physical infrastructure and connections as well as the related services
and  application  layers,  thus  enabling  the  interchange  of  information  electronically
between and within public administrations as well as between public administrations
and businesses and citizens;

“Pan-European  eGovernment  services”  means  public  sector  information  and
interactive services provided by public  administrations to public administrations, to
businesses, including their associations  and  to  citizens, including  their  associations,
by means of interoperable trans-European telematic networks;

“Project  of  common  interest”  means  a  project  as  identified  in  Annex  I,  which  is
undertaken or continued under this Decision, and which concerns the establishment
or enhancement of pan-European eGovernment services;

“Infrastructure  services”  means  services  provided 
to  meet  generic  project
requirements, comprising technology solutions and software applications, including a
European  interoperability  framework,  security,  middleware  and  network  services.
Infrastructure services underpin the delivery of pan-European eGovernment services;

“Horizontal measure” means an action as identified in Annex II, which is undertaken
or  continued  under  this  Decision,  and  which  concerns  the  establishment  or
enhancement of infrastructure services or strategic and support activities;

“Interoperability”  means  the  ability  of  information  and  communication  technology
(ICT)  systems  and  of  the  business  processes  they  support  to  share  and  exchange
information and knowledge.

10

Article 3
Priorities

For the purpose of establishing the work programme referred to in Article 8(1), priority shall
be given to those projects of common interest and horizontal measures which, by means of the
establishment  or  enhancement  of  pan-European  eGovernment  services  and  the  underlying
telematic networks:

(a)

(b)

(c)

(d)

(e)

(f)

(g)

(h)

(i)

contribute  to  the  objectives  of  the  eEurope  initiative  and  related  Action  Plans,  in
particular in relation to eGovernment, aimed at benefiting businesses and citizens;

directly  contribute  to  removing  or  reducing  the  obstacles  to  the  free  movement  of
goods, persons, services and capital;

directly contribute to the satisfactory operation of the economic and monetary union;

support the creation of a European area of security, justice and freedom ;

encourage interinstitutional co-operation between the Community institutions as well
as  between  the  latter  and  national,  regional  and  local  public  administrations,
including national and regional parliaments;

contribute  to  the  protection  of  the  financial  interests  of  the  Community  and  the
Member States or to the fight against fraud;

facilitate  the  application  of  the  body  of  Community  law  ("acquis  communautaire")
following the enlargement of the European Union;

promote  competitiveness  in  the  Community,  with  particular  emphasis  on  the
competitiveness of small and medium-sized enterprises, as well as enterpreneurship
and innovation; or

support  the  citizenship  of  the  Union  and  the  participation  in  the  European  Union
policy-making processes, e.g. by means of consultation of relevant stakeholders.

Article 4
Projects of common interest

In  order  to  achieve  the  objectives  laid  down  in  Article  1,  the  Community  shall,  in  co-
operation  with  the  Member  States,  implement  projects  of  common  interest  as  identified  in
Annex I and specified in the work programme referred to in Article 8(1), in accordance with
the implementation principles laid down in Articles 6 and 7.

Projects of common interest shall, whenever possible, make use of the infrastructure services
and provide the input required for the development of these services in accordance with the
project requirements.

11

1.

2.

3.

1.

2.

3.

4.

5.

Article 5
Horizontal measures

In order to achieve the objectives laid down in Article 1, the Community shall, in co-
operation  with  the  Member  States,  in  support  of  projects  of  common  interest,
undertake  horizontal  measures  as  identified  in  Annex  II  and  specified  in  the  work
programme  referred  to  in  Article  8(1),  in  accordance  with  the  implementation
principles laid down in Articles 6 and 7.

Horizontal measures shall provide, maintain and promote infrastructure services for
public  administrations  in the Community on the  basis  of  a  maintenance  and  access
policy defined in the framework of the IDABC programme. They shall also establish
strategic  and  support  activities  to  promote  pan-European  eGovernment  services,
perform  strategic  analysis  of  related  developments  in  the  Community  and  Member
States, and ensure the programme management and the spread of good practice.

In  order  to  be  able  to  identify  the  horizontal  measures  to  be  undertaken,  the
Community  shall  establish  a  description  of  the  infrastructure  services.  The
description  shall  include  aspects  such  as  the  required  management,  organisation,
related  responsibilities  and  cost-sharing  as  well  as  a  strategy  to  be  used  in  the
development and implementation of the infrastructure services. The strategy shall be
based on the assessment of project requirements. The description shall be reviewed
on a yearly basis.

Article 6
Implementation principles

In implementing projects of common interest and horizontal measures, the principles
set out in paragraphs 2 to 10 shall be observed.

This Decision is the legal basis for the implementation of horizontal measures.

The implementation of a project shall require a sectoral legal basis. For the purpose
of  this  Decision,  a  project  shall  be  considered  to  fulfil  this  requirement  when  it
supports 
to  public
the  delivery  of  pan-European  eGovernment  services 
administrations, to businesses or to citizens in the framework of the implementation
of a sectoral legal basis or any other relevant legal basis.

The first subparagraph does not apply to projects of common interest that support the
delivery  of  eGovernment  services  between  Community  institutions  and  European
Agencies.

Participation  of  all  Member  States  in  a  project  in  support  of  pan-European
eGovernment services provided from public administrations to businesses, including
their  associations,  or  from  public  administrations  to  citizens,  including  their
associations, is not required.

Projects  of  common  interest  and  horizontal  measures  shall  encompass  all  actions
necessary  for  the  establishment  or  enhancement  of  pan-European  e-government
services,  including  the  establishment  of  working  groups  of  Member  State  and
Community experts, and the procurement of goods and services for the Community,
as appropriate.

12

6.

7.

8.

9.

10.

1.

2.

Projects of common interest and horizontal measures include, whenever appropriate,
a  preparatory  phase.  They  shall  comprise  a  feasibility  phase,  a  development  and
validation phase, and an implementation phase to be implemented in accordance with
Article 7.

This paragraph shall not apply to strategic and support activities as defined in Part B
of Annex II.

The definition and implementation of each project of common interest or horizontal
measure  shall  build,  whenever  appropriate,  on  suitable  results  achieved  by  other
relevant  Community  and  Member  States  activities,  in  particular  the  Community
research  and 
technological  development  programmes  and  other  Community
programmes, such as eTEN, eContent and MODINIS.

Projects  of  common  interest  or  horizontal  measures  shall  be  technically  specified
with  reference  to  European  standards  or  publicly  available  specifications  or  open
specifications  for  information  exchange  and  service  integration  and  shall  comply
with  the  infrastructure  services,  as  appropriate,  in  order  to  ensure  interoperability
between  national  and  Community  systems  within  and  across  administrative  sectors
and with businesses and citizens.

Projects of common interest  and  horizontal measures shall, where  appropriate, take
due  account  of  the  European  interoperability  framework  provided,  maintained  and
promoted by the IDABC programme.

A  post-implementation  review  of  each  project  of  common  interest  or  horizontal
measure shall be carried out within one year following the end of the implementation
phase.

In  the  case  of  projects  of  common  interest  the  review  shall  be  carried  out  in  co-
ordination  with  the  Member  States  in  conformity  with  the  rules  governing  the
sectoral policy and presented to the relevant sectoral committee.

In  the  case  of  horizontal  measures  the  review  shall  be  carried  out  within  the
framework of the committee referred to in Article 11(1).

A review shall include a cost-benefit analysis.

Article 7
Additional principles

In addition to the principles set out in Article 6, the principles set out in paragraphs 2
to 8 shall apply.

The  preparatory  phase  shall  lead  to  the  establishment  of  a  preparatory  report
comprising the objectives, scope  and rationale of the project of common interest or
horizontal measure and in particular the anticipated costs and benefits, as well as the
achievement of the necessary commitment and understanding among the participants
through appropriate consultation, including an indication of the committee competent
to follow the implementation of the project or measure.

13

3.

The feasibility phase shall lead to the establishment of a global implementation plan
which  shall  cover  the  development  and  implementation  phases  and  comprise  the
information contained in the preparatory report as well as:

(a)

a  description  of  planned  organisational  development  and,  whenever
appropriate, re-engineering of working procedures;

(b)

objectives, functionalities, participants and technical approach;

(c) measures to facilitate multilingual communication;

(d)

the assignment of roles to the Community and to the Member States;

(e)

(f)

a breakdown of  the  expected  costs  and  a  description  of  the  expected  benefits
which  includes  assessment  criteria  for  measuring  those  benefits  beyond  the
implementation phase and a detailed analysis of return on investment as well as
milestones to be achieved;

a schema which defines an equitable sharing between the Community and the
Member States and, whenever appropriate other entities, of the operational and
maintenance  costs  of  the  pan-European  e-government  and  infrastructure
services on conclusion of the implementation phase;

During the development and validation phase, the solution proposed may, if relevant,
be constructed, tested, evaluated and monitored on a small scale, and the results shall
be used to adjust the global implementation plan accordingly.

During  the  implementation  phase,  the  fully  functional  services  concerned  shall  be
established in accordance with the global implementation plan.

The  preparatory  report  and  the  global  implementation  plan  shall  be  established  by
making use of methodologies prepared as a support activity in the framework of the
IDABC programme.

The initiation and implementation of a project of common interest, the definition of
its  phases  and  the  establishment  of  preparatory  reports  and  global  implementation
plans shall be made and controlled by the Commission acting in accordance with the
relevant sectoral committee procedure.

Where  no  sectoral  committee  procedure  applies,  the  Community  and  the  Member
States shall set up groups of experts to examine all relevant issues.

The  conclusions  resulting  from  sectoral  committees  and,  where  applicable,  from
groups of experts shall be reported by the Commission to the committee referred to
in Article 11(1).

The  initiation  and  implementation  of  a  horizontal  measure,  the  definition  of  its
phases and the establishment of preparatory reports and global implementation plans
shall  be  made  and  controlled  by  the  Commission  acting  in  accordance  with  the
procedure referred to in Article 11(2).

4.

5.

6.

7.

8.

14

1.

2.

1.

2.

3.

4.

Article 8
Implementation procedure

The  Commission  shall  establish  a  work  programme  for  the  whole  duration  of  this
Decision  for  the  implementation  of  projects  of  common  interest  and  horizontal
measures.

The Commission shall approve the work programme and any modification thereof in
accordance with the procedure referred to in Article 11(2).

For  each  project  of  common  interest  and  for  each  horizontal  measure,  the  work
programme referred to in the first paragraph shall, where appropriate, include:

(a)

(b)

a  description  of  the  objectives,  scope,  rationale,  potential  beneficiaries,
functionalities and technical approach;

a breakdown of past expenditure and milestones achieved, as well as the costs
and benefits anticipated and the milestones to be achieved;

(c)

a specification of the infrastructure services to be used.

Article 9
Budgetary provisions

Without prejudice to Article 8, the procedure referred to in Article 11(2) shall apply
in  respect  of  the  indication  of  budget  per  project  of  common  interest  or  horizontal
measure, as necessary, to cover, subject to applicable budget rules, the full duration
of the work programme.

Budget  shall  be  released  on  the  basis  of  the  achievement  of  specific  milestones
following the procedure applicable to the relevant sectoral committee for projects of
common  interest  and  to  the  committee  referred  to  in  Article  11(1)  for  horizontal
measures.  For  the  initiation  of  the  preparatory  phase  the  milestone  shall  be  the
inclusion of the project of common interest or horizontal measure to be undertaken in
the work programme. For the initiation of the feasibility phase the milestone shall be
the  preparatory  report.  For  the  initiation  of  the  subsequent  development  and
validation phase the milestone shall be the global implementation plan. Milestones to
be  achieved  during  the  development  and  validation  phase  as  well  as  the
implementation phase will be integrated in the work programme in accordance with
Article 8.

The procedure referred to in Article 11(2) shall also apply in respect of proposals for
any budgetary increase of more than EUR 100 000 per project of common interest or
horizontal measure within a year.

The  Programme  shall  be  implemented  on  the  basis  of  the  rules  of  public
procurement.  The  technical  specifications  of  the  calls  for  tender  shall,  for  contract
values  in  excess  of  EUR  1  000  000,  be  defined  in  co-ordination  with  the  Member
States in the framework of the relevant sectoral committee or the committee referred
to in Article 11(1).

15

1.

2.

3.

4.

5.

6.

7.

8.

1.

2.

3.

8

Article 10
Community financial contribution

In  the  implementation  of  projects  of  common  interest  and  horizontal  measures,  the
Community shall bear costs in proportion to its interest.

The financial contribution of the Community for each project of common interest or
horizontal measure shall be determined in accordance with paragraphs 3 to 7.

For  a  project  of  common  interest  or  a  horizontal  measure  to  receive  a  financial
contribution from the Community, concrete plans for financing the maintenance and
operational  costs  of  the  post-implementation  phase  shall  be  required,  with  a  clear
assignment of roles to the Community and to the Member States or to other entities.

In the preparatory and feasibility phases, the Community contribution may cover the
full cost of the necessary studies.

In  the  development  and  validation  phase  and  in  the  implementation  phase,  the
Community shall bear the cost of those tasks which are assigned  to  it in the  global
implementation plan of that project of common interest or horizontal measure.

Community  funding  of  a  project  of  common  interest  or  a  horizontal  measure
concerning the delivery and maintenance of infrastructure services shall, in principle,
cease after a maximum period of four years from the start of the preparatory phase.

The  financial  resources  provided  for  under  this  Decision  shall  not  be  assigned  to
projects  of  common  interest  and  horizontal  measures  or  phases  of  projects  of
common  interest  and  horizontal  measures  which  benefit  from  other  sources  of
Community funding.

Within two years of  the  entering  into  force of this Decision, mechanisms  to ensure
the  financial  and  operational  sustainability  of  infrastructure  services,  where
appropriate, shall be defined and agreed in accordance with the procedure referred to
in Article 11(2).

Article 11
Management Committee

The  Commission  shall  be  assisted  by  a  committee  called  the  Telematics  between
Administrations  Committee  (TAC),  composed  of  representatives  of  the  Member
States and chaired by the representative of the Commission.

Where  reference  is  made  to  this  paragraph,  Articles  4  and  7  of  Council  Decision
1999/468/EC8 shall apply, having regard to Article 8 thereof. The period laid down
in Article 4(3) of Decision 1999/468/EC shall be set at three months.

The TAC shall adopt its rules of procedure.

OJ L 184, 17.7.1999, p. 23.

16

                                                
4.

1.

2.

3.

1.

2.

3.

The  Commission  shall  report  annually  to  the  TAC  on  the  implementation  of  this
Decision.

Article 12
Evaluation

The Commission shall, in co-ordination with the Member States, carry out a midterm
evaluation  of  the implementation  of this Decision followed by a final  evaluation  at
the end of the programme.

The  evaluation  shall  establish  the  progress  and  current  status  of  the  projects  of
common interest and horizontal measures identified in Annexes I and II respectively.

the  benefits  yielded  by 

The  evaluation  shall  also  examine,  in  the  light  of  the  expenditure  incurred  by  the
Community, 
the  pan-European  eGovernment  and
infrastructure  services  to  the  Community  for  the  advancement  of  common  policies
and institutional co-operation as far as public administrations, businesses and citizens
are concerned and identify areas for potential improvement and verify synergies with
other  Community  activities  in  the  area  of  pan-European  eGovernment  and
infrastructure services.

The  Commission  shall  forward  its  evaluations  to  the  European  Parliament  and  the
Council together with any appropriate proposal for the amendment of this Decision.
The evaluations shall be forwarded no later than the draft budget for the years 2008
and 2010 respectively.

Article 13
International co-operation

The  IDABC  programme  may  be  opened,  within  the  framework  of  their  respective
agreements  with  the  Community,  to  participation  by  the  countries  of  the  European
Economic Area and the candidate countries.

Co-operation with other third countries, in implementing projects of common interest
and horizontal measures, shall be encouraged, notably with public administrations in
Mediterranean countries, the Balkans and the countries of Eastern Europe. Particular
attention shall also be given to international co-operation in support of development
and  economic  co-operation.  Related  costs  shall  not  be  covered  by  the  IDABC
programme.

International  organisations  or  other  international  entities  may  take  part  in  the
implementation of projects of common interest and horizontal measures at their own
costs.

17

1.

2.

3.

4.

5.

6.

1.

Article 14
Other networks

With  regard  to  the  establishment  or  enhancement  of  other  networks  which  are  not
projects  of  common  interest  or  horizontal  measures  (hereinafter  “other  networks”),
Member States and the Community shall, in accordance with the relevant provisions
of  the  Community  legislation  governing  the  implementation  of  those  networks,
ensure that paragraphs 2 to 6 are complied with.

Subject  to  paragraphs  3  and  4,  infrastructure  services  provided  by  the  Community
within the framework of this Decision may be used by other networks.

In  the  definition  and  implementation  of  each  of  the  other  networks,  care  shall  be
taken to build on suitable results achieved, whenever appropriate, by other  relevant
Community  activities,  in  particular  the  Community  research  and  technological
development  programmes  and  other  Community  programmes,  such  as  eTEN,
eContent and MODINIS.

Each of the other networks shall be technically specified with reference to European
standards or publicly available specifications, or open specifications for information
exchange and service  integration, as appropriate,  in  order  to  ensure  interoperability
between  national  and  Community  systems  within  and  across  administrative  sectors
and with businesses and citizens.

By 31 October 2005, and at yearly intervals thereafter, the Commission shall forward
to  the  committee  referred  to  in  Article  11(1)  a  report  on  the  implementation  of
paragraphs  1  to  6  of  this  Article.  In  that  report,  the  Commission  shall  specify  any
relevant  user  requirements  or  any  other  reason  that  prevent  other  networks  from
making  use  of  the  infrastructure  services  under  paragraph  2  of  this  Article,  and
discuss the possibility of upgrading the infrastructure services in order to extend their
use.

The  infrastructure  services  developed  within  the  Community  framework  under  the
IDA or the IDABC programme may be used by the Council of the European Union
with regard to the establishment or enhancement of activities in the framework of the
common foreign and security policy and police and judicial co-operation in criminal
matters  in  accordance  with  Titles  V  and  VI  of  the  Treaty  on  European  Union
respectively.

The  use  of  such  infrastructure  services  shall  be  decided  upon  and  financed  in
accordance with Titles V and VI of the Treaty on European Union.

Article 15
Financial reference amount

The  financial  reference  amount  for  the  implementation  of  the  Community  action
under this Decision for the period from 1 January 2005 to 31 December 2006 shall be
59.1 million euro, out of which:

i)

ii)

30.5 million euro for projects of common interest

28.6 million euro for horizontal measures.

18

2.

3.

Subject to compatibility with the future financial perspectives, the financial reference
amount for the implementation of the Community action under this Decision for the
period from 1 January 2007 to 31 December 2009 shall be 89.6 million euro, out of
which:

i)

ii)

44.2 million euro for projects of common interest;

45.4 million euro for horizontal measures

The  annual appropriations  for the period from  2007 to  2009  shall  be  authorised  by
the budgetary authority within the limit of the financial perspectives.

Article 16
Entry into force

This Decision  enters into force on the twentieth day  of its  publication  and  shall  apply  from
1 January 2005 until 31 December 2009.

Done at Brussels,

For the European Parliament
The President

For the Council
The President

19

Projects of common interest

ANNEX I

Projects of common interest under the IDABC programme are those established notably in the
following areas:

A. IN GENERAL

1.  Community  policies  and  activities  (in  accordance  with  section  B),  interinstitutional
information  exchange  (in  accordance  with  section  C),  international  co-operation  (in
accordance with section D) as well as other networks (in accordance with section E).

2. Functioning of  the European Agencies  and bodies and in  support  of  the  legal  framework
arising from the creation of the European Agencies.

3. Policies related to the free movement of persons, notably in support of the delivery of equal
services to citizens and businesses in the different Member States.

4.  Actions  which,  within  the  framework  of  the  Community  policies  and  activities  and  in
unforseen  circumstances,  are  urgently  required  to  support  the  action  of  the  Community  and
the Member States.

B. COMMUNITY POLICIES AND ACTIVITIES

1. Economic and monetary policy.

2. Consolidation of the “acquis communautaire” following the  enlargement  of the European
Union.

3.  Regional  and  cohesion  policies,  notably  to  facilitate  the  collection,  management,  and
dissemination of information concerning the implementation of regional and cohesion policies
at the level of central and regional public administration.

4.  Community  funding,  notably  to  create  an  interface  to  existing  Commission  databases  in
order to facilitate the access of European organisations, and particularly SMEs, to Community
sources of funding.

5. Statistics, notably regarding the collection and dissemination of statistical information, as
well  as  statistics  in  support  of  eGovernment,  in  order  to  evaluate  interoperability  between
systems and their efficiency as a measure of success.

6. Publication of official documents and management of official information services.

7.  Agricultural  and  fisheries  sectors,  notably  regarding  support  for  the  management  of
agricultural  markets  and  structure,  more  efficient  financial  management,  exchange  of  farm
accounts data between national agencies and the Commission, and the fight against fraud.

8.  Industry  and  services  sectors,  notably  concerning  the  exchange  of  information  between
public administrations in charge of business competitiveness issues, and between such public
administrations and industry federations.

20

9.  Competition  policy,  notably  through  the  implementation  of  improved  electronic  data
exchange  with  the  national  public  administrations  in  order  to  facilitate  information  and
consultation procedures.

10.  Education,  culture  and  audio-visual  sector,  notably  for  the  exchange  of  information
concerning  content  issues  on  open  networks  and  to  promote  the  development  and  free
circulation of new audio-visual and information services.

11.  Transport  sector,  notably  for  the  support  of  the  exchange  of  data  concerning  drivers,
vehicles, ships and transport operators.

12. Tourism, environment, consumer protection and public health, and public procurement.

13. Research policy, in particular to facilitate the collection, management and dissemination
of information concerning the implementation of co-ordinated research policies at the level of
national public administrations.

14.  Contributions  to  the  objectives  of  the  eEurope  initiative  and  related  action  plan,  in
particular  the  chapter  on  eGovernment  and  security,  aimed  at  benefiting  businesses  and
citizens.

15.  Immigration  policy,  notably  through  the  implementation  of  improved  electronic  data
exchange  with  the  national  public  administrations  in  order  to  facilitate  information  and
consultation procedures.

16. Co-operation between judicial authorities.

17. Information systems allowing the participation of national parliaments and civil society in
the legislative process.

18.  Follow-up  of  the  implementation  of  Community  legislation  in  the  Member  States  and
exchange of information between Member States and Community institutions.

C. INTERINSTITUTIONAL INFORMATION EXCHANGE

Interinstitutional exchange of information, notably:

1. in support of the Community decision-making process and Parliamentary questions;

2.  for  the  setting  up  of  the  necessary  telematic  links  between  the  Commission,  European
Parliament,  the  Council  (including  the  site  of  the  European  Union  Presidency-in-office,  the
Permanent  Representation  of  the  Member  States  and  co-operating  national  ministries)  and
other Community institutions;

3.  in  facilitation  of  multilinguism  in  interinstitutional  information  exchanges,  means  of
translation workflow management and translation support tools, the development and sharing
of multilingual resources, and the organisation of common access to such resources;

4.  for  document  sharing  between  European  Agencies  and  bodies  and  the  Community
Institutions.

21

D. INTERNATIONAL CO-OPERATION

Extension  of  projects  of  common  interest  to  third  countries,  including  candidate  countries,
and  international  organisations,  with  particular  attention  to  initiatives  for  development  and
economic co-operation.

E. OTHER NETWORKS

The projects of common interest which were previously funded by the IDA programme and
which  now  have  their  own  Community  funding  nevertheless  fall  within  the  group  “other
networks” referred to in Article 14 of the Decision.

22

Horizontal measures

ANNEX II

Horizontal measures under the IDABC programme are notably:

A. DELIVERY AND MAINTENANCE OF INFRASTRUCTURE SERVICES

1. Horizontal measures undertaken to provide and maintain software applications as turn-key
tools  for  standard  operational  needs  of  public  administrations  in  the  context  of  delivery  of
pan-European eGovernment services , such as:

(a) A portal for the delivery of pan-European, multilingual online information and interactive
services to businesses and citizens

(b) A single point access to e.g. legal online information services in Member States

(c)  Interactive  application  for  collecting  stakeholders’  opinions  and  experience  on  issues  of
public interest and on functioning of Community policies

(d)  Common  specifications  and  infrastructure  services  facilitating  electronic  procurement
across Europe

(e) Machine translation systems and other multilingual tools, including dictionaries, thesaurus
and classification systems in support of multilinguism

(f) Applications to support co-operative work between public administrations

(g)Applications to support multi-channel access to services

(h)  Surveys  of  open  source  software-based  tools  and  actions  to  facilitate  the  exchange  of
experiences between, and the take-up of solutions by, public administrations

2. Horizontal measures undertaken to provide and maintain technology solutions as services
providing  specific  ICT-related  functionalities,  from  communications  to  defined  standards.
Technology solutions  comprise  network  services,  middleware,  security  and  guidelines,  such
as:

(a)  A  secure  and  reliable  communication  for  interchange  of  data  between  public
administrations

(b)  A  secure  and  reliable  system  for  management  of  dataflows  inter-linked  with  different
workflows

(c) Common telecommunication interfaces for trans-European applications

(d) Common toolkit for management of multilingual collaborating web sites and portals

(e) Platform accreditation with a view to handling classified information

(f) Establishment and implementation of an authentication policy for networks and projects of
common interest

23

(g) Security studies and risk analysis in support of networks or other infrastructure services

(h)  Mechanisms  to  establish  trust  between  certification  authorities  to  allow  for  the  use  of
electronic certificates across Europe

(i) Public key infrastructure services

(j) A common framework for sharing and interchanging information and knowledge between
European  public  administrations  and  with  businesses  and  citizens,  including  architecture
guidelines

(k)  Application  development  based  on  a  specification  of  XML  vocabularies,  schemae  and
related XML deliverables to support the interchange of data in networks

(l)  Functional  and  non-functional  model  requirements  for  the  management  of  electronic
records in public administrations

(m) A metadata framework for public sector information in pan-European applications

(n)  Comparison  of  open  exchange  standards  with  a  view  to  establishing  a  policy  on  open
formats

B. STRATEGIC AND SUPPORT ACTIVITIES

1. Strategic activities in support of assessment and promotion of pan-European eGovernment
services, such as:

(a) Analysis of eGovernment and IT strategies across Europe

(b) Organisation of awareness raising events involving the stakeholders concerned

(c)  Promotion  of  the  establishment  of  pan-European  eGovernment  services  with  special
attention to services to businesses and citizens.

2. Support activities undertaken in support of programme management aiming at monitoring
and improving effectiveness and efficiency of the programme, such as:

(a) Quality assurance and control to improve the specification of project objectives as well as
the project execution and results

(b)  Programme  evaluation  and  cost-benefit  analysis  of  specific  projects  of  common  interest
and horizontal measures

3.  Support  activities  undertaken  in  support  of  spread  of  good  practice  in  the  application  of
information technologies to public administrations, such as:

(a) Reports, web sites, conferences and, in general, initiatives addressed to the public

(b) Monitoring, analysis and web site dissemination of initiatives and best practice related to
eGovernment actions at Member State, Community and international level

(c) Promotion of the spread of best practice in the use of e.g. open source software by public
administrations

24

LEGISLATIVE FINANCIAL STATEMENT

Policy area(s): Trans-European Telematic Networks

Activit(y/ies): (the programme being a horizontal Programme cutting across different DGs, the
indication of a specific activity does not appear appropriate).

TITLE  OF  ACTION:COMMUNITY  PROGRAMME  ON  THE  INTEROPERABLE  DELIVERY  OF  PAN-
EUROPEAN  EGOVERNMENT  SERVICES  TO  PUBLIC  ADMINISTRATIONS,  BUSINESSES,
AND  CITIZENS  (IDABC)  SUCCEEDING  THE  INTERCHANGE  OF  DATA  BETWEEN
ADMINISTRATIONS (IDA-II) PROGRAMME

1.

BUDGET LINE(S) + HEADING(S)

Chapter  B5-72,  Article  B5-721,  Item  B5-7210  (Budget  lines  02  02  04  and
02 01 04 05)

2.

2.1.

2.2.

OVERALL FIGURES

Total allocation for action (Part B): 148.7 M€ million for commitment

Period of application:

2005-2009 (the current IDA II Programme ending on 31st December 2004)

2.3.

Overall multiannual estimate of expenditure:

(a)

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

(financial

€ million (to three decimal places)

Year [n]

[n+1]

[n+2]

[n+3]

[n+4]

[n+5
and
subs.
Years]

Total

Commitments

28.550

29.050

29.250

29.000

29.000

144.850

Payments

10.000

22.850

29.850

29.800

29.800

22.550

144.850

(b)

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

Commitments

0.750

0.750

0.750

0.800

0.800

Payments

0.750

0.750

0.750

0.800

0.800

3.850

3.850

Subtotal a+b

Commitments

29.300

29.800

30.000

29.800

29.800

148.700

Payments

10.750

23.600

30.600

30.600

30.600

22.550

148.700

25

(c)

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

Commitments/
payments

2,358,500/
2,358,500

2,358,500/
2,358,500

2,358,500/
2,358,500

2,358,500/
2,358,500

2,358,500/
2,358,500

0

11,792,500

TOTAL a+b+c

Commitments

31,658,500

32,158,500

32,358,500

32,158,500

32,158,500

160,492,500

Payments

13,108,500

25,958,500

32,958,500

32,958,500

32,958,500

22,550,000

160,492,500

2.4.

Compatibility with financial programming and financial perspective

[x]

Proposal is compatible with existing financial programming.

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

Proposal  may  require  application  of  the  provisions  of  the  Interinstitutional
Agreement.

2.5.

Financial impact on revenue:

[x]

Proposal  has  no  financial  implications  (involves  technical  aspects  regarding
implementation of a measure)

3.

BUDGET CHARACTERISTICS

Type of expenditure

New

EFTA
contribution

Contributions
form applicant
countries

Heading in
financial
perspective

Non-comp

Diff

YES

YES

YES

No 3

4.

LEGAL BASIS

Art. 156 of the EC-Treaty

5.

DESCRIPTION AND GROUNDS

5.1.

Need for Community intervention

5.1.1. Objectives pursued

The  challenges  facing  Europe  today,  such  as  enlargement,  sustainable  economic
growth,  social  development,  safeguarding  security  and  overcoming  the  distance
between the European  union  and  its  citizens,  require  joint  policies  responses  at  the
European  level.  They  also  require  governments  to  join  forces  as  far  as  the
implementation  of  common  policies  is  concerned.  The  implementation  of  a  broad
range of legislative acts is in fact the shared responsibility of the Member States and
the  European  Commission  and  requires  the  development  of  new  ways  of  working

26

together, based on Information Technology and telematic networks. Furthermore,the
Action Plan for eEurope 2005, endorsed by the European Council meeting in Seville
in  June  2002,  underlines  the  importance  of  eGovernment  and  in  particular  the
establishment  of  pan-European  eGovernment  services  to  businesses  and  citizens  in
support of cross border activities. .

In the above context, the objectives of the new programme are the following:

–  facilitate  the  implementation  of  common  policies  by  means  of  trans-European
telematic  networks  as  the  instrument  to  bringing  public  administrations  together
and supporting their  co-operative  efforts  towards  a  modern,  enlarged  and  secure
Europe;

–  build  on  the  networks  to  develop  interoperable  information  and  interactive
eGovernment  services  at  the  pan-European  level  between  public  administrations
and extend to citizens and enterprises the benefits resulting from the cooperation
between public administrations across Europe;

–  ensure  continuity,  as  many  of  the  IDA  II  projects  of  common  interest  and
horizontal  measures  more  recently  undertaken  will  need  to  evolve  from  the
preparatory  and  feasibility  phases  to  the  full  deployment  of  pan-European
eGovernment services and underlying telematic networks.

5.1.2. Horizontal measures

The horizontal measures consist of infrastructure services and strategic and support
services.

The  main  objective  of  the  infrastructure  services  is  to  facilitate  interoperability
between  systems,  information  and  processes  at  the  pan-European  level,  as  this  is  a
fundamental requirement from both the technical and the economic perspectives. The
interoperability of the information systems, the sharing and re-use of the information,
and the joining-up of the  administrative processes  are  essential  for the provision of
high quality, seamless and interactive, user-centric eGovernment services.

Interoperability  of  systems,  content,  and  processes  across  different  levels  of
government, from local to European, is  also fundamental to achieving services of a
really  pan-European  nature  and  reducing  the  risk  of  fragmentarity  in  eGovernment
developments.

The  main  objectives  of  the  strategic  and  support  activities  is  to  support  the
assessment and promotion of pan-European eGovernment services.

5.1.3.

The mid-term evaluation of IDA II

(a)

two evaluations of the IDA II Programme were carried out: the first at the start and
the  second  at  mid-term.  Both  evaluations  were  based,  to  a  large  extent,  on  the
conclusions and recommendations of external consultants, and took into account the
results of extensive interviews of European Commission services and Member States
public  administrations.  The  reports  of  such  evaluations  were  forwarded  to  the
European Parliament and the Council and were also made available on the IDA web
site (europa.eu.int/ispo/ida).

27

(b)

the main conclusions of the IDA II mid-term evaluation were the following:

–  the range of policy  areas  covered  has  considerably  expanded  and  the  number  of

beneficiaries among the public administrations has increased;

–  regarding citizens and businesses, the Programme should  continue to ensure and
verify  that  citizens  and  enterprises  benefit  from  IDA  networks,  as  well  as
encourage the introduction of citizens and enterprises as users wherever possible,
notably via the provision of pan-European eGovernment services;

–  there  is  a  very  good  level  of  cooperation  between  the  MSs  and  the  European
Commission,  and  the  opportunities  that  IDA  can  bring  to  cross-fertilization  are
among its great strengths;

–  due  consideration  should  be  given  to  how  IDA  can  maintain  appropriate
consultation links with different tiers of governments, enterprises and citizens;

–  the  size  and  complexity  of  the  Programme’s  procedures  should  continue  being

simplified wherever possible.

5.2.

Action envisaged and budget intervention arrangements

The new programme comprises two strands, namely Projects of Common Interest in support
of sectoral policies, and Horizontal measures in support on interoperability between networks
and services. They are all co-operative activities which need to be carried out at the European
level.

– 

– 

– 

– 

In  both  cases  the  target  beneficiaries  are  member  state  administrations,  European
Commission  services  and  European  Agencies  concerned  by  the  implementation  of
community  policies  and  the  management  of  the  Internal  Market,  as  well  as  the
Community  institutions  (in  relation  to  the  inter-institutional  decision-making
process).  Business  and  citizens  (in  particular  those  involved  in  cross-border
activities)  are  also  beneficiaries  (in  some  cases  directly,  in  others  indirectly)  in  the
sense that they will be able to benefit from the pan-European eGovernment services
to be established.

The specific objectives are to establish pan-European eGovernment services (and the
underlying networks) in support of existing and new policy areas, and facilitate their
establishment by means of interoperability.

The  concrete  horizontal  measures  to  be  taken  to  implement  the  programme
encompass:  working  groups  of  Member  States  and  European  Commission
representatives,  aimed  at  exchange  of  experience  and  spread  of  best  practice;
preparation  and  execution  of  studies;  development  of  software  applications  and
services.

The  immediate  outputs  of  each  action  may  include  the  provision  of  guidelines,
software applications, networks and services.

28

– 

Apart from the case of the Inter-Institutional co-operation, the new Programme will
act, as for IDA II, in support of the implementation of legislative acts. The needs of
the  sectoral  administrations  will  be  analysed  in  the  context  of  preparatory  and
feasibility studies and  the developments /  implementations  will  be  accompanied  by
user satisfaction surveys.

The  funding  will  be  used,  as  a  general  rule,  to  purchase  IT  services  from  the  market.  In
general,  the  development  of  networks  /  services  will  be  anticipated  by  a  preparatory  and
feasibility phase, which will include analyses of costs and benefits, as well as concrete plans
for  the  long-term  financial  and  operational  sustainability  of  the  networks  /  services  to  be
developed.

In  comparison  with  the  IDA  II  Programme,  the  annual  budget  of  the  follow-on  Programme
has been increased by about 20% to cover expenditures relating to the full integration of the
new  Member  States.  Furthermore,  in  support  of  the  eEurope  initiatives,  the  scope  of  the
IDABC  Programme  is  broader  in  as  far  as  it  encompasses  networks  as  well  as  services
extending the  benefits  of the interaction between  administrations  to  businesses  and  citizens.
Likewise,  increased  funding  should  be  available  to  ensure  efficient,  effective  and  secure
interchange of information.

5.3.

Methods of implementation

The Projects of Common Interest will be under the  responsibility  of the sectoral services of
the  Commission,  in  co-operation  with  the  relevant  MSs  authorities  as  represented  in  the
various sectoral committees. The Horizontal measures will be under the responsibility of the
Commission  in  co-operation  with  the  Programme  management  Committee.  To  ensure  the
long-term  viability  of  the  relevant  Horizontal  measures,  the  Programme  foresees  that  the
Commission, in co-operation with the Programme management Committee will define, within
two years following the entering into force of the new Decision, a mechanism that will ensure
the  financial  sustainability  of  horizontal  measures  related  to  infrastructure  services,  e.g.
through public-private co-operation or by transferring the services to an agency.

29

6.

FINANCIAL IMPACT

6.1.

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

6.1.1.

Financial intervention

Commitments (in € million to three decimal places)

Breakdown

[Year
n]

[n+1]

[n+2]

[n+3]

[n+4]

Projects of common interest

14.000

14.500

14.500

14.500

14.500

Horizontal measures

14.550

14.550

14.750

14.500

14.500

etc.

[n+5
and
subs.
Years]

Total

72.000

72.850

TOTAL 28.550

29.050

29.250

29.000

29.000

144.850

6.1.2.

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

[Year
n]

[n+1]

[n+2]

[n+3]

[n+4]

Total

[n+5
and
subs.
years]

1) 
administrative assistance

Technical 

and

Technical 

a) 
offices

assistance

and

technical 

b)  Other 
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

0.500

0.250

Subtotal 2

0.750

TOTAL 0.750

0.500

0.250

0.750

0.750

0.500

0.250

0.750

0.750

0.550

0.250

0.800

0.800

0.550

0.250

0.800

0.800

2.600

1.250

3.850

3.850

30

6.2.

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

Breakdown

Commitments (in € million to three decimal places)

Type
of outputs
(projects, files
)

Number of
outputs

Average unit
cost

(total for years
1…n)

Total cost

(total for years
1…n)

1

2

3

4=(2X3)

1.800

1.900

1.800

0.900

3.200

0.300

29.200

1.200

1.800

0.250

0.200

28.800

7.600

7.200

22.500

9.600

0.900

76.600

29.200

16.800

21.600

2.500

2.000

72.100

148.700

 Projects of common interest

-New  networks/services  Admin  –
Admin

Projects

-New  networks/services  Admin  –
Businesses

Projects

-  New  networks/services  Admin  –
Citizens

- Continuation of existing networks

-Inter-institutional networks

-International cooperation

Sub-total

Horizontal measures

- Communication platform

- Other technology solutions

- Administrative applications

- Spread of best practice

-  Strategic  activities  and  programme
management

Sub-total

TOTAL COST

16

4

4

25

3

3

55

Projects

Projects

Projects

Projects

Horiz. Actions

1

Horiz. Actions

Horiz. Actions

Horiz. Actions

Horiz. Actions

14

12

10

10

47

31

7.

IMPACT ON STAFF AND ADMINISTRATIVE EXPENDITURE

The  needs  for  human  and  administrative  resources  shall  be  covered  within  the  allocation
granted to the managing DG in the framework of the annual allocation procedure.

7.1.

Impact on human resources

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

Number of
permanent posts

Number of
temporary posts

Total

10

1

6

17

10

1

6

4

21

3 ENDs (incl. 1 EEA)
1 Auxiliaire

4

Description of tasks deriving from the
action

.

All these are existing resources

Types of post

Officials 
temporary staff

or

A

B

C

Other human resources

Total

7.2.

Overall financial impact of human resources

Type of human resources

Amount (€)

Method of calculation *

Officials

Temporary staff

1,836,000

17 x € 108,000

Other human resources

135,500

(specify budget line)

97,000

Total

2,068,500

3 x 44,500 (END)

1 x 97,000 (Aux)

The amounts are total expenditure for twelve months.

7.3.

Other administrative expenditure deriving from the action

Amount €

Method of calculation

0.040M

0.250M

6  meetings  of 
the  Management
Committee  and  6  meetings  of  the
working  group  of  the  Management
Committee

Budget line

(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 (specify)

Information systems (A-5001/A-4300)

Other expenditure – Part A (specify)

Total

0.290M

32

The amounts are total expenditure for twelve months.

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

I.

II.

III.

8.

Annual total (7.2 + 7.3)

Duration of action

Total cost of action (I x II)

2,358,500€

5 years

11,792,500€

FOLLOW-UP AND EVALUATION

8.1.

Follow-up arrangements

A  dashboard  already  implemented  in  IDA  II  will  be  used  to  report  the  progress  of  the
programme on the basis of indicators agreed with the Member States.

8.2.

Arrangements and schedule for the planned evaluation

Whereas the last evaluation of the IDA II programme will take place in 2004, two evaluations
are  foreseen  in  the  proposed  Decision  for  the  new  Programme,  in  order  to  establish  the
progress  and  current  status  of  the  projects  of  common  interest  and  horizontal  measures
identified in Annexes I and II of the Decision. The evaluations shall also examine, in the light
of  the  expenditure  incurred  by  the  Community,  the  benefits  yielded  by  the  pan-European
eGovernment and infrastructure services to the Community for the advancement of common
policies and institutional co-operation as far as public administrations, businesses and citizens
are  concerned  and  identify  areas  for  potential  improvement  and  verify  synergies  with  other
Community activities in the  area  of  pan-European  eGovernment  and  infrastructure  services.
The  Commission  shall  forward  its  evaluations  to  the  European  Parliament  and  the  Council
together  with  any  appropriate  proposal  for  the  amendment  of  this  Decision,  including  the
Annexes. The evaluations shall be forwarded no later than the draft budget for the years 2008
and 2010 respectively.

9.

ANTI-FRAUD MEASURES

Rules  and  procedures  governing  the  procurement  of  services  by  the  Community  are  strictly
respected  in  conformance  with  the  Financial  Regulation  applicable  to  the  general  budget  of
the  European  Communities,  the  detailed  Rules  for  the  Implementation  of  the  Financial
Regulation, and the Internal Rules of the European Commission. All the contracts concluded
between the European Commission and the beneficiaries of the payments include appropriate
clauses  of  control.  Only  standard  contracts  of  the  Commission  will  be  used  and  the
procurement  processes  will  be  subject  to  multiple  controls,  in  order  to  ensure  regularity,
sound  financial  management  and  transparency.  All  contracts  provide  systematically  for
control  measures,  such  as  periodical  reports  and  submission  of  deliverables  specified  in
advance at dates fixed in the contracts.

33