Communication from the Commission on buildings policy and infrastructures in Brussels
Date: 2003-12-10
Institutions: European Commission
Subjects: Brussels region, European Commission, building, property leasing, real property, seat of institution, town planning

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 10.12.2003
COM(2003) 755 final

COMMUNICATION FROM THE COMMISSION

ON BUILDINGS POLICY AND INFRASTRUCTURES IN BRUSSELS

EN

  EN

CONTENTS

TABLE OF CONTENTS

1.

2.

INTRODUCTION........................................................................................................ 3

PRINCIPLES FOR ACTION ...................................................................................... 5

2.1.

Integrating the Commission’s buildings into the urban fabric..................................... 5

2.1.1. Diversifying activities in the European Quarter........................................................... 5

2.1.2. Developing Europe’s image......................................................................................... 5

2.1.3. Defining the urban planning framework ...................................................................... 6

2.2.

Improving the accessibility and quality of Commission buildings.............................. 7

2.2.1.

The accessibility of buildings....................................................................................... 7

2.2.2. Building quality............................................................................................................ 8

2.3.

A policy of mobility..................................................................................................... 8

2.3.1.

Journeys between the various Commission buildings ................................................. 9

2.3.2.

Journeys to the workplace.......................................................................................... 10

2.4.

Working environment and conditions........................................................................ 11

2.4.1. A suitable working environment................................................................................ 11

2.4.2.

Social amenities in tune with requirements ............................................................... 12

3.

3.1.

3.2.

3.3.

4.

5.

6.

7.

8.

9.

IMPLEMENTING THE BUILDINGS POLICY IN THE SHORT AND MEDIUM
TERM......................................................................................................................... 13

Office space as at the end of 2003 ............................................................................. 14

2004-05, a transition period ....................................................................................... 14

On possible alternative locations for the various departments................................... 15

ADOPTING A STRATEGY WITH REGARD TO RENTING, PURCHASING OR
RENOVATING BUILDINGS ................................................................................... 16

INTERINSTITUTIONAL COOPERATION ............................................................ 17

DRAFT DEVELOPMENT PLAN FOR THE EUROPEAN QUARTER................. 18

CONCLUSIONS........................................................................................................ 18

Annex I - Action PLan ............................................................................................... 19

Annex II - Procedure for the issuance of planning permits ....................................... 21

2

 
1.  INTRODUCTION

The  decision  taken  by  the  Member  States  in  Edinburgh  on  12  December  1992  to  fix  the
headquarters of the European Commission in Brussels allowed a start to be made on planning
the building needs set out in the communication of 1996 on buildings policy in Brussels and
Luxembourg1 and that of 1999 on buildings policy in Brussels2.

The communications stress three principal objectives:

– 

– 

– 

the rational installation of services and better working conditions for staff,

greater use of the purchasing option,

intensification of the dialogue with the Belgian authorities with a view to reconciling
the  Commission’s  building  needs  with  urban  planning  and  the  wishes  of  local
residents,  reflecting  the  impact  of  the  Commission’s  buildings  policy  on  the  urban
environment of Brussels.

At the end of 2003, the Commission occupies 734 000 m² of office space and the Institutions
as a whole almost 1 600 000 m², or around 45% of all office space in the European Quarter.

These  figures  show  the  increasing  importance  of  the  Institutions  in  economic  terms.  Their
presence has a considerable financial impact3 and the positive contribution of their operating
expenditure to the economy of the Brussels region was estimated in 1998 at 27 billion Belgian
francs4. To this must be added the economic impact of  the presence of  the  personnel of the
Institutions and their families, a total of more than 50 000 people. Finally, a range of sectors
have  developed,  including  the  European  schools,  the  diplomatic  corps,  the  press  corps,  the
representations, international associations and interest groupings connected with the European
Union,  banks  and  business  services,  which  all  make  a  financial  contribution  to  the  local
economy and the budgets of the Belgian authorities.

As regards town planning, architecture in the European Quarter is of varying quality, the area
is an enclave, which creates traffic problems, and the monopoly of administrative and service
activities has created an imbalance.

Against this background, the Commission has set itself the goal of  participating fully in the
harmonious development of the European Quarter in order, by means of its buildings and its
initiatives, to make an effective contribution to improving the image of Europe, in accordance
with  its  policies,  in  particular  in  the  social,  environmental  and  energy  fields.  This  includes
improving the working conditions of staff, including as regards travel between the home and
the workplace, and improving access for disabled people.

Since  the  buildings  policy  adopted  by  the  Commission  has  a  direct  effect  on  the  working
conditions of its staff, in particular in the areas of health and safety at work and social welfare

1

2

3

4

SEC(96) 1095 final of 18 June 1996.
COM(1999) 713 final of 16 December 1999.
"The  socio-economic  impact  of  the  European  and  international  Institutions  in  the  Brussels  Region"  –
Irises consulting, 1998.
Of an estimated total of 42 billion francs for Belgium as a  whole in that  year. This sum of 27 billion
Belgian francs is equal to approximately €670 000 000.

3

 
                                                
policy,  it  must  be  implemented  with  due  regard  for  the  statutory  powers  of  the  Staff
Committee and the relevant joint committees5.

So, although this is still the goal and the objectives set out in the communications of 1996 and
1999 remain relevant, a more comprehensive approach is required to buildings policy and the
development of Commission infrastructures over the medium term, targeted on achieving four
aims:

– 

– 

– 

– 

integrating the Commission’s buildings into the urban fabric, to reflect the role of the
Institution and redefine its image,

improving the accessibility and quality of Commission buildings,

improving mobility within Brussels,

improving  the  working  environment  and  conditions  of  staff,  in  conjunction  with
social policy, including as regards travel between the home and the workplace.

These  four  aims  must  form  the  basis  for  the  development  of  buildings  policy  and
infrastructures in Brussels over the coming years.

This quality-based approach must take account of enlargement and the corresponding increase
in  staff  numbers  and  need  to  integrate  officials  from  the  new  Member  States,  which  will
require the reorganisation of the Commission’s buildings and social infrastructures.

At the end of 2003, the situation in Brussels as regards office space is problematic and there is
a shortage of places in crèches and after-school centres.

What is more, the concentration of buildings of all the Institutions within the restricted area of
the European Quarter has a direct impact on rents and purchase prices and on the management
of office space.

While  the  annual  cost  of  buildings  has  remained  relatively  stable  over  recent  years,  taking
account of the  area  occupied6,  this  situation  is  probably  going  to  change.  Several  economic
and/or  technical  indicators  point  to  rising  pressure  on  prices  in  the  European  Quarter.  In
addition,  buildings  costs  are  destined  to  increase  in  2005  with  the  acquisition  of  the
Berlaymont building and then later on with the new JECL building.

This  situation  calls  for  a  series  of  measures  to  reconcile  increased  needs  with  budgetary
constraints and to seek, within the existing budgetary framework, better efficiency by:

– 

– 

– 

5

6

adopting  a  strategy  of  building  purchases  and  the  development  of  advantageous
financing methods,

examining  how  the  Commission  could  locate  some  of  its  departments  outside  the
European Quarter,

strengthening cooperation between Institutions.

CSHT, COCEPE, CPRE, COPAS, CASS.
The cost was €123 million for 612 000 m² in 1996 and €158.2 million for 734 000 m² in 2003.

4

 
                                                
The  idea  of  cooperation,  or  even  partnership,  between  the  Institutions  and  the  Belgian
authorities  is  also  supported  by  the  urban  plan  for  the  European  Quarter7  presented  on
3 October 2003 on the initiative of the Belgian Government. The Commission must indicate
the position it intends to adopt with regard to the range of proposals put forward in the plan.

The  decisions  and  guidelines  proposed  below  will  serve  as  a  basis  for  the  multiannual
programmes  of  the  Office  for  Infrastructure  and  Logistics  in  Brussels  (OIB),  in  operation
since  1 January  2003.  They  will  be  incorporated  from  2004  in  the  OIB’s  annual  work
programmes and will be carried out in compliance with the administrative rules laid down by
the Commission for the implementation of its policy in this field8.

This policy aims to promote the rational development of the European Quarter in accordance
with Brussels’ status as the symbol of Europe.

2.  PRINCIPLES FOR ACTION

2.1. Integrating the Commission’s buildings into the urban fabric

There  are  three  possible  types  of  measure  under  this  heading:  diversifying  activities  in  the
European Quarter, developing Europe’s image through its buildings and helping to define the
urban planning framework.

2.1.1.  Diversifying activities in the European Quarter

The diversification of activities in the European Quarter must be based on encouraging a mix
of office space, shops and housing.

Developing  housing  and  shops  will  recreate  a  sense  of  community  allowing  solutions  to  be
found to recurrent problems such as insecurity in streets that are deserted at certain times and
a lack of access to local services.

With  regard  to  housing  within  the  European  Quarter,  the  Commission  is  in  principle  in
favour,  on  condition  that  the  authorities  responsible  for  granting  planning  permission  take
steps to control property development in the area.

As  for  commercial  activities,  the  Commission  undertakes  to  encourage  areas  open  to  the
public, in particular shops, on the ground floor of its buildings.

The types of activity concerned must comply with the health and safety requirements, which
will be incorporated in the standard building criteria, and must be in keeping with the image
of the Institution.

2.1.2.  Developing Europe’s image

The  image  offered  by  the  European  Quarter  must  be  improved,  as  far  as  possible  in
cooperation  with  the  Belgian  authorities,  by  improving  town  planning  and  endeavouring  to
increase the architectural quality of the buildings occupied by the Commission.

7

8

Ombudsplan  Bru/Eur  Médiateur  –  Aries  consultants.  Study  commissioned  by  the  Prime  Minister’s
Office and the Office of the President of the Brussels Region.
C(2003)570/5 of 22 July 2003.

5

 
                                                
If  Europe’s  image  is  to  be  developed,  the  quality  of  its  buildings  must  be  improved.  This
involves  choosing  quality  architecture  that  combines  efficiency,  sobriety  and  attractiveness
and ensuring that each building conveys a welcoming, open image.

The  first  objective  of  quality  architecture  does  not  conflict  with  budgetary  constraints  but
depends on:

– 

– 

– 

the  ability  to  plan  purchases  or  rentals  in  order  to  pre-empt  the  choices  made  by
promoters and architects while taking account of administrative constraints9. The role
assigned  by  the  Commission  to  the  OIB10,  in  particular  the  drawing  up  of  a
multiannual buildings policy programme, meets this need;

the possibility of the OIB’s architects giving their opinion on architectural projects if
they are submitted to them at a sufficiently early stage in their development;

the launching, after evaluation of the budgetary impact, of international architectural
competitions  for  both  the  complete  modernisation  of  a  building  when  the  OIB  is
responsible for project development and for the construction of large new buildings
that might have a significant impact on the urban environment.

The  second  objective,  buildings  that  convey  an  open  image  of  the  Institution  is  currently
being  studied  by  an  inter-departmental  and  inter-Institutional  working  party  chaired  by  the
OIB  and  made  up  of  representatives  of  the  Secretariat-General,  of  the  Directorates-General
ADMIN,  PRESS  and  EAC,  of  GOPA  and  of  the  other  Institutions.  This  working  party  has
been  instructed  to  draw  up  guidelines  and  proposals  to  promote  the  European  idea,  in
particular based on the buildings occupied by the Institutions in the European Quarter, and to
provide a warmer  welcome so as to facilitate contacts with European citizens. The first two
specific measures drawn up by this working party, relating to the visibility of buildings  and
the  welcome  provided,  will  be  submitted  to  the  Directorates-General  and  departments
concerned  for  implementation.  The  working  party  is  also  giving  priority  to  defining  the
content of the message conveying the European idea and the ways it can be spread.

2.1.3.  Defining the urban planning framework

The  definition  of  an  urban  planning  framework  incorporating  the  Commission’s  buildings
requires a strengthening of its role with respect to the Belgian authorities.

Currently,  the  Commission’s  contribution  is  no  more  than  that  of  any  other  resident  of  the
European  Quarter,  i.e.  participation  in  groups  set  up  to  promote  improvements  to  the  area.
This role is clearly inadequate given the  issues and  the  place  our  Institution  occupies  in  the
development of the European Quarter.

As  a  major  player  on  the  property  market,  the  Commission  should  aim  to  play  a  role  in
drawing  up  projects  for  the  development  of  blocks  and/or  streets  in  cooperation  with  the
Belgian authorities and take a full part in the decision-making process.

Achieving that objective requires a single contact point on the part of the Belgian authorities
in the form of a public body with the appropriate powers in the urban development field. The
current  fragmentation  of  decision-making  within  the  Brussels  Region  is  preventing  the

9

10

See the procedures for the grant of planning permission given in Annex II.
Decision  of  6  November  2002  establishing  the  Office  for  infrastructure  and  logistics  in  Brussels  –
C(2002) 4368 final.

6

 
                                                
adoption  of  a  coherent  urban-planning  policy.  Only  if  the  Belgian  authorities  take  steps  to
overcome this problem can coordinated and effective action be taken to translate into practice
the commitment, shared by the Commission, to make Brussels the capital of Europe.

The Commission would therefore like the competent authorities to set up a public body that
brings together the various administrative levels involved.

For  its  part,  in  the  pursuit  of  the  aim  of  harmonious  and  coherent  development,  the
Commission undertakes to strengthen cooperation with the other European Institutions.

2.2. Improving the accessibility and quality of Commission buildings

2.2.1.  The accessibility of buildings

The question of the accessibility of buildings can be divided into three areas:

– 

– 

– 

access by modes of transport, either individual or collective, which comes under the
problem of mobility dealt with below11;

ease of access for all members of the public, which can be improved in particular by
improving  signposting  in  the  European  Quarter  and  by  implementing,  with  the
assistance  of  the  Belgian  authorities,  a  project  similar  to  the  “Sentier  de  l’Europe”
project. Since this initiative has so far remained a dead letter, account will be taken
of the difficulties it has encountered;

Accessibility  for  handicap  people,  in  particular  with  reduced  mobility,  partially
sighted or with hearing problems. The Commission should put in place the necessary
rules (including in the ”Building Standards Manual”) and  means, to apply European
best practice. This principle should be applied taking account of the need to balance
the budget and of the technical constraints of the buildings

11

Paragraph 2(3).

7

 
                                                
2.2.2.  Quality of buildings.

Quality of buildings is a requirement that must apply on two levels:

– 

– 

from  a  technical  perspective,  the  Commission  must  maintain  high  standards  of
equipment,  basing  itself  in  particular  on  recommendations  and  best  practice  in  the
environmental  field,  more  especially  with  regard  to  the  energy  efficiency  of
buildings12. The said standards cover security, hygiene and fire-detection devices that
satisfy  legal  requirements  and  are  aimed  at  safeguarding  people  and  property.  This
twofold  requirement  will  be  reflected  in  the  paper  entitled  "Buildings  Standards
Manual";

from  a functional perspective, firstly,  in the  interests of  efficiency and  consistency,
by endeavouring to ensure that each Directorate-General or Service operates from a
single  building  or  group  of  buildings,  and  secondly  by  encouraging  developers  to
adapt the architecture of buildings to the needs and requirements of the departments
which  are  to  use  them,  in  the  interests  of  a  better  working  environment  and  staff
welfare.

The  multiannual  buildings  programme  the  OIB  has  been  asked  to  implement  will  help  to
achieve these objectives.

2.3. A policy of mobility

In the Fifth Community programme  of  policy  and action in  relation  to  the environment  and
sustainable development, which the Council adopted on 1 February 1993, the management of
mobility is regarded as one of the principal challenges of that development.

The Commission Decision on environment issues in the administration of the Commission13
advocates the need for a policy of mobility.

In accordance with its policies and amid a deterioration of transport conditions in the Brussels
area, the immediate effects of which are  an  increase  in  traffic  congestion  and  pollution,  the
Commission, as one of the biggest employers  in the  Brussels Region,  must  contribute to an
overall improvement in transport conditions, in particular for its staff.

A major feature of the town planning and mobility policy recently drawn up by the Brussels
Region is a significant reduction in the office space to parking spaces ratio.14 The legislation
will  apply  to  all  new  or  renovated  buildings  in  the  Brussels  Region  and,  in  time,  will  also
have  a  direct  impact  on  the  Commission,  in  particular  as  regards  the  allocation  of  parking
spaces.

The Commission's mobility policy must accordingly be based on the one hand on the choices
to be made as regards the location of office buildings and social amenities and, on the other,
on  the  discussions  on  transport  conditions  (journeys  between  home  and  the  workplace)  and
the alternatives in terms of work arrangements (e.g. teleworking), while also taking account of
town planning and environmental constraints.

12

13

14

In  conformity  with  the  Directive  2002/91/CE  of  16  December  2002  on  the  energy  efficiency  of
buildings.
COM (97) 2155 of 16 July 1996.
The ratio will be raised from of 75 m² (its current level) to 200 m2 of offices per parking space.

8

 
                                                
The  policy  comprises  two  separate  but  complementary  strands:  one  dealing  with  journeys
between the various Commission sites and buildings, the other with travel between home and
the workplace, including journeys made in connection with schools, crèches and after-school
care services.

In the case of town planning and environmental constraints, a general debate must take place
with a view to identifying concrete measures in terms of mobility policy, including how they
should  be  financed,  and  restoring  a  balance  in  the  way  the  various  modes  of  transport  are
used.15

2.3.1.  Journeys between the various Commission buildings

Since its departments tend to be dispersed, the Commission endeavours to implement reliable
and  credible  alternative  solutions  as  regards  duty  travel,  while  reducing  to  a  minimum  the
impact such travel has on congestion and pollution in the European Quarter.

Promoting  public  transport  with:  since 1998,  free  travel  on  the No 21  and 22 buses  on
presentation  of  a  staff  card;  since 1 July  2001,  a  free  shuttle  service  operating  between  the
European Quarter and Brussels airport for officials leaving on  mission;  and, since 1 January
2003,  the  possibility  of  free  travel  on  the  Brussels  public  transport  system  (STIB)  both  for
staff whose buildings are situated some distance away from the European Quarter (Beaulieu
and  Demey)  and  for  technicians  who  are  called  upon  to  make  frequent  trips  between
Commission buildings.

Promoting  cycling  as  a  mode  of  transport,  with  bicycles  being  made  available  to  staff  for
journeys within the city. This policy cannot, however, be fully effective unless there are also
safe cycle paths.

The present arrangements are supplemented by regular information on the alternative means
of transport the Commission makes available to its staff and by surveys aimed at finding out
about  the  latter's  transport  habits  and  awareness  of  the  facilities  made  available  by  the
Commission.

These  initiatives  constitute  proof  that  a  well  thought-out  policy  can  produce  satisfactory
results.  In  response  to  a  September  2002  survey  of  about 4 000  members  of  staff, 63%  said
that they travelled on the No 22 bus, whose route covers nearly every Commission building.
In  this  connection  the  principle  of  having  buildings  located  on  the  most  effective  transport
routes,  i.e. with  direct  access  to  the  underground,  bus  or  tram  or,  at  a  later  stage,  the  RER
(Regional Express Network), needs to be confirmed and reinforced.

The emphasis must henceforth be on more intensive use of alternative means of transport, be
they  individual  or  collective,  and  on  greater  awareness  of  the  facilities  available  to  staff.
Accordingly,  collaboration  with  STIB  and  with  the  local  authorities  in  charge  of  providing
cycle paths will be stepped up.

Lastly, the Commission must be in a position to ensure the mobility of disabled staff. Suitable
measures will be introduced in this respect.

15

The Commission currently provides 10 000 parking spaces, at a unit cost of €1 000 to €1 500 annually,
and is engaged in a policy of cooperation with STIBcosting €300 000 per annum.

9

 
                                                
2.3.2.  Journeys to work

The  September  2002  survey  also  showed  that 56%  of  the  staff  who  responded  to  the
questionnaire used their own vehicle for journeys to work, in particular because there was no
valid alternative and/or because of family or work-related constraints.

In this connection the policy of mobility, which has yet to be defined, cannot be dissociated
from the  choices  to  be  made  regarding  the  location  of  departments  and  the  need  to  avoid  a
dispersal of office buildings and social amenities.

To take stock of the situation a survey will, as a matter of priority, focus on traffic flows and
the  modes  of  transport  used  to  and  from  Commission  buildings.  It  will  include  journeys
relating to schools, crèches and after-school care services and will be aimed at identifying the
priorities of a future mobility plan.

In the light of the findings, a number of options will be put forward in order to determine a
strategy for increasing mobility by improving journeys between home and the workplace and
helping to reduce the chronic problems of traffic congestion and pollution in Greater Brussels.

Consideration can already be given to several types of measure (e.g. car pooling) designed to
encourage more rational use of private transport and greater use of public transport. The aim
should be to strive for quality in public transport services and accessibility for as many people
as possible.

Discussions  on  the  feasibility  of  a  self-financing  general  agreement  with  STIB  should
continue, under which staff would be allowed free travel on the company's entire network. In
this  connection,  the  Commission  will  give  consideration  to  the  incentives  that  might  be
required in order to increase public transport usage.

In the same vein and depending on the numbers concerned, the Commission should examine
whether  it  could,  possibly  in  agreement  with  the  other  institutions,  be  responsible  for  the
administration of applications for season tickets by staff who use Belgium's national railways.

The last two measures could well constitute a major incentive for using the modes of transport
concerned.

The promotion of cycling is reflected in specific amenities in Commission buildings and car
parks :  this  policy  should  be  reinforced  by  providing  increased  bike-parking  and  showering
facilities.  It  must  also  be  accompanied  by  requests  to  the  Belgian  authorities  to  provide
additional cycle paths.

In  this  twin  context  there  must  be  increased  collaboration  with  the  relevant  Brussels
authorities.

Promoting mobility week could thus take on an added dimension, allowing the Commission
to increase awareness among its staff on the basis of concrete measures it had itself adopted.

The Commission must show political will vis-à-vis its staff, the other institutions and Belgian
political circles. In this respect, it cannot but encourage initiatives aimed at the development
of public transport, in particular the regional railway link (RER).

10

 
2.4. Working environment and conditions

While  defining  a  policy  of  mobility  and  making  sound  choices  as  regards  the  location  of
office buildings are major factors in the quality of working and private life, a suitable working
environment and satisfactory social amenities are no less important in this context.

2.4.1.  A suitable working environment

requirements 

The multiannual buildings programmes drawn up by the OIB are based on plans setting out
the 
for
Directorates-General  and  Services.  The  plans  take  account  of  the  Commission's  policy
priorities,  foreseeable  changes  in  staff  numbers,  and  budget  forecasts,  and  are  expected  to
allow the total floorspace available to be better adapted in terms both of quantity and quality.

space  and  other  premises 

terms  of  office 

intended 

in 

In quantitative terms the OIB will, on the basis of the technical criteria set out in the "Housing
Conditions Manual", now under preparation, allocate overall areas in the light of requirements
the  said
as  notified  annually  by  each  Directorate-General  or  Service.  Each  of 
Directorates-General  and Services  will be responsible for managing  its  floorspace  rationally
and fairly as prescribed in the Commission Decision on the administrative rules applicable to
the OIB.16 The OIB will, on request, provide the Directorates-General and Services with the
technical assistance required for optimal use of the floorspace they have been allocated.

In  qualitative  terms,  in  addition  to  the  rules  laid  down  in  the  above-mentioned  "Buildings
Standards Manual",17 the OIB will in particular see to it that the size of individual or groups
of buildings takes account of the size of the Directorates-General or Services which use them,
so  that  the  buildings  can  constitute  operationally  coherent  units.  In  striving  towards  this
objective, however, account will have to be taken of the fact that the rapid growth of certain
Directorates-General or Services may render implementation difficult. The OIB will also see
to it that the office furniture is of high quality, with ergonomic and qualitative characteristics
that can help to optimise individual working conditions.

16

17

See footnote 8 above.
Paragraph 2.2.2.

11

 
                                                
Proper  management  of  the  space  available  with,  in  particular,  room  for  manoeuvre  in  the
context  of  enlargement  and  the  ability  to  free  relocations/reassignments  from  as  many
constraints  as  possible,  calls  for  confirmation  of 
the
above-mentioned  communication  of 18 June  1996,  that  the  Commission  should  have  a 5%
reserve of office space.18

the  principle,  enshrined 

in 

A  discussion  is  under  way  on  changes  in  working  methods  such  as  office-sharing  and
teleworking. It is to be supplemented by one focusing on how space should be used, e.g. the
provision of open spaces. This twin approach is not intended to impose a particular solution.
It seeks  sound and rational use of office space and to permit services to choose the working
methods best suited to their needs.

2.4.2.  Social amenities in tune with requirements

In keeping with the objectives of the reform, a number of priorities have been set regarding
catering services and staff access to sports equipment in the vicinity of the European Quarter,
and a subject which comes under buildings policy and amenities, childcare facilities.

The first of these priorities is the introduction of an integrated childcare system that satisfies
very  strict  standards  and  covers  crèches,  after-school  care  services,  outdoor  childminding
centres and schools. It is an essential component of the Commission's social policy.

One of the priorities  of  the  latter is  an  improvement  in childcare facilities  in order better to
reconcile working and private life.19

Special  attention  accordingly  needs  to  be  paid  to  crèches  and  after-school  care  services,  in
particular  in  the  context  of  enlargement,  in  order  to  welcome  staff  from  the  new  Member
States and help them settle in.

The shortage of crèche and after-school care service places in Brussels can be made good - in
the medium term - only if a significant and determined policy of purchasing or leasing/renting
suitable buildings is implemented.

The Commission  provides the necessary  facilities  for crèches and  after-school  care  services
used by staff of the institutions generally, except for the crèches used by Parliament staff.

The  Commission  does  not  have  enough  crèche  places  to  meet  all  the  needs,  as  a  result  of
which there is a long waiting list. In addition, the situation on the local market and anticipated
additional demand in connection with enlargement will tend to add to the shortage.

With this rising need in mind, consideration has been given to a number of projects aimed at
providing two new crèches. The opening  of the  first one, on the  boulevard du  Triomphe,  at
the end of 2006 or the beginning of 2007, will not, however, fully make good the shortage.

While  pursuing  the  objective  of  providing  a  second  new  crèche  in  the  vicinity  of  office
buildings or the European schools, the OIB must now find a way of meeting - in particular via
transitional solutions - the very heavy demand expected in 2004-07.

18

19

SEC (96) 1095 final of 18 June 1996, p. 2.
Decision C(2002)842 of 4 March 2002.

12

 
                                                
The demand for after-school care service and outdoor childminding centre places is rising in
much the same way as that for crèches.

The policy pursued consists in having the after-school care services located on the same sites
as the European schools, this being a principle which has been defended in the discussions on
the opening of a fourth European school.

Currently, the outdoor childminding centres are partly located  at  the interinstitutional  centre
in Overijse.

The latter, which also boasts some sporting facilities, is somewhat dilapidated. Its status, use
and purpose accordingly need to be reviewed. A study now under way into the advisability of
renovation will  examine  the alternative solutions now being explored. Further  arrangements
have  been  negotiated    on  special  advantageous  terms,  at  certain  sports  facilities  within
Brussels.

The availability of restaurants, etc. near the workplace is a factor in the procedure for renting
or leasing new buildings in the light of their geographical location. This strand of the social
policy is also reflected in the renovation of the more dilapidated facilities.

3.  IMPLEMENTING  THE  BUILDINGS  POLICY  IN  THE  SHORT  AND  MEDIUM
TERM

The principles defined above are in keeping with the approach followed by the Commission
since  its  1999  communication,20  i.e. grouping  and  concentrating  buildings  with  a  view  to
proper operation of the various departments and increasing the effectiveness of the mobility
policy,  renovating  buildings  in  order  to  preserve  a  quality  working  environment,  and
rationalising by ensuring that building size is adapted to the requirements of the departments
allocated to them.

Not only must the implementation of the buildings policy in the short and medium term be in
keeping with this threefold objective, it must, bearing in mind the situation experienced at the
end  of 2003,  also  lead  to  a  discussion  on  the  advisability  of  alternative  locations  for
departments in the light of forecasts, based on a whole series of indicators, which point to a
very real risk of property and economic pressure on the European Quarter.

20

See footnote 2 above.

13

 
                                                
3.1. Office space as at the end of 2003

There are four main aspects:

(a)

A tight situation as regards floorspace available.

The Commission has 734 000 m² of office space, spread out over 53 buildings.

This covers the Commission's basic requirement of 718 000 m²,21 but only part22 of
the  reserve - the  need  for  which  is  reaffirmed  above23 - not  allocated  to  the
Directorates-General and Services.

There  is,  at  the  end  of 2003,  an  overall  shortage  of 20 000 m².  This  concerns  the
reserve,  preventing  it  from  improving  the  situation  with  regard  to  office  space  for
staff;

(c)

(d)

The distribution between three poles of different sizes and characteristics does

(b)
not assist departmental operations or continuity.24

A disparity in building size, with numerous Directorates-General and Services spread
out between several locations. Only 15% of the buildings have more than 20 000 m²
of floorspace.

Implementation  of  a  coherent  policy  of  acquisition  of  quality  buildings  in  the
European Quarter. This now accounts for 42% of the office space, almost double the
corresponding figure for 1998.

3.2. 2004-05, a transition period

2004-05  should  see  the  beginning  of  a  rationalisation  of  the  allocation  of  office  space  to
Directorates-General and Services.

In is in 2004 that the Berlaymont - at the very heart of the European Quarter - will be made
available to the Commission.

This  will  mean  relinquishing  the  Genève  group  of  buildings  and  entering  into  negotiations
concerning the leases on certain replacement buildings, whose cost is currently borne by the
Belgian  State.  The  principles  defined  above  will  help  to  define  the  options  available  as
regards the various buildings.

Without  pre-empting  the  decisions  as  to  which  Directorates-General  and  Services  will  be
assigned  to  the  Berlaymont,  the  moves  that  take  place  will  allow  groups  to  be  formed,  in
particular in the Breydel building.

21

22

23

24

This is arrived at by  multiplying the total number of  people  concerned by 35 m²,  a  figure  set  in doc. IX/2689/83
of 1 April 1984 "Rapport n°2 au Parlement Européen sur la politique immobilière des Institutions communautaires"
drawn  up  by  the  Groupement  Interinstitutionnel  de  Politique  Immobilière  and  comprising: 12 m²  of  office  space
proper,  12 m²  of  washrooms,  corridors  and  archive  rooms,  and  an  average  of 11 m²  for  specific  uses  (  entrance
halls, conference rooms, restaurants, debating chambers, etc.).
Barely 50%.
See 2.4.1.
The  Genève  site  comprises  two  buildings  totalling 28 000 m²,  the  Beaulieu  site  six  and  a  total
of 59 000 m², and the Quartier Léopold 45 buildings totalling 647 000 m².

14

 
                                                
The evacuation of the JECL building, currently set for 2005, will be programmed in the light
of  the  availability  of  the  Berlaymont  and  the  decision  as  to  where  to  assign  the
Directorate-General for Translation, the current occupant of the JECL.

In 2006-07 the Commission will have to choose between renegotiating the leases which will
have expired and abandoning 11 buildings - totalling 113 500 m² - which it currently uses.

Moreover additional space will be required in connection with the anticipated setting up of a
number of agencies.25

This  situation  illustrates  the  need  to  consider  whether  the  Commission  could  provide  its
departments with alternative locations, on condition that the latter meet certain requirements
in terms of accessibility and are within reach of an effective public transport route.

3.3. On possible alternative locations for the various departments

The  Commission's  presence  in  the  European  Quarter  is  the  result  of  not  only  a  series  of
historical  factors  but  also  the  convergence  of  certain  practical  considerations.  With  the
passing of time, the  European institutions  have become  established  in  what  has  become  the
"European Quarter". This proximity has undoubtedly brought benefits, in terms of improved
communication  and  working  relations,  for  Directorates-General  and  Services  which  are  in
frequent  and  regular  contact  with  the  other  institutions.  Moreover  the  European  Quarter
presents a number of advantages in terms of public transport infrastructure.

In the long run, however, having the departments of every Institution concentrate and grow in
the European Quarter may well have an inflationary impact on the price of office buildings, in
spite of closer institutional cooperation.

Parliament and the Council now forecast significant growth in the next five years in the wake
of enlargement.

In  this  connection,  while  the  way  in  which  the  institutions  operate  entails  a  geographical
concentration of their departments, the Commission could consider grouping together outside
the  European  Quarter  a  number  of  departments  which  do  not  have  to  be  in  the  immediate
proximity  of  the  seat  of  the  Commission  and  the  other  institutions.  In  this  respect,  the
question as to whether certain Directorates-General, agencies and departments really need to
be located at the heart of the European Quarter will have to be considered in the light of actual
operational requirements.

In  carrying out such a scrutiny,  account must be taken of the principle of concentrating  and
grouping together Directorates-General and Services operating in similar policy areas.

Such  a  move  would  serve  to  boost  competition  and  curb  the  upward  pressure  on  property
prices and rents.

25

The agencies will themselves provide the financing for their buildings.

15

 
                                                
Facilities in terms of access, communication and efficient public transport, the possibility of
easing  journeys  between  home  and  the  workplace,  proximity  to  the  European  Quarter,  the
possibilities of expansion at the  alternative  site,  the  presence  of  shops  and  social  amenities,
and the possibility of projecting a European image there will have to be determining criteria
in the process of discussion and selection.

4.  ADOPTING  A  STRATEGY  WITH  REGARD  TO  RENTING,  PURCHASING  OR
RENOVATING BUILDINGS

The  1996  communication26  set  out  the  two  main  conclusions  of  the  Interinstitutional
Technical Working Party on Building Programmes and Financing Arrangements:

– 

– 

in the long term, purchasing is cheaper than renting/leasing;

in  the  short  term  the  annual  cost  of  renting/leasing  is  lower  than  that  of
purchase.

Those  conclusions  are  equally  valid  today  in  that,  in  view  of  the  Commission's  continued
presence in the European Quarter, purchase allows locations to become more stable and curbs
the often negative effects of market uncertainties and fluctuations.

A measure of flexibility must, however, be preserved to enable the Commission to adjust its
strategy  in  accordance  with  future  requirements,  in  particular  by  using  renting/leasing  as  a
flexible means of managing its office space, etc.

The guidelines set in 1996 and the buying policy implemented since then illustrate the need to
define a property policy based on the strategic value of the buildings to be acquired.

This property policy must be based on a threefold budgetary dimension:

(a)

(b)

(c)

making payments over 27 years in the context of leasehold contracts with an option
to  buy,  the  only  means  of  acquiring  property  which  is  legally  compatible  with  the
financial rules and, by providing real rights in respect of buildings, one which makes
it  possible  to  benefit  from  the  provisions  of  the  Protocol  on  privileges  and
immunities;

under  the  existing  budget  rules,  contracting  for  building  projects  at  a  sufficiently
early  stage,  to  ensure  that  the  buildings  are  available  and  meet  the  Commission's
requirements;

the long-term cost of renovating buildings, for which plans must be drawn up and for
which suitable budgetary solutions and specialised structures  must be set up within
the  OIB  so  that  the  latter  can  become  the  contracting  authority  for  its  renovation
projects.

The Commission must also be equipped with effective instruments in two fields: the selection
of buildings and their financing.

26

See footnote 1 above.

16

 
                                                
Concerning the first of these, an independent valuation carried out by an external expert must
provide  the  Commission  departments  concerned  with  a  clear  picture  of  the  state  of  the
building  and  the  trend  on  the  Brussels  property  market  for  that  geographical  location  when
entering into negotiations.

As  regards  the  second  of  the  two  fields  referred  to  above,  the  payment  applicable  in
connection  with  the  option  to  buy  will  generally  be  raised  on  financial  markets.  This  is  a
method  which  has  proved  effective  in  budgetary  terms  since,  on  the  occasions  when  the
Commission has chosen it, the interest rate has been particularly advantageous. The option to
buy  will  be  exercised  at  the  earliest  possible  moment  having  regard  to  the  terms  of  the
contract. With a view to securing the Commission's real rights over buildings which are the
subject of a long-term lease, consideration could be given to SPVs (Special Purpose Vehicles,
legal entities distinct from the property companies holding the  rights to the  buildings which
are the subject of the leases) in order to hedge against the financial risks if such an approach is
found to have undeniable benefits.

5.  INTERINSTITUTIONAL COOPERATION

Interinstitutional cooperation is at present centred on the mandate given to the ILISWG.27

Its  principal  objective  is  to  coordinate  the  actions  of  the  institutions  in  order  to  achieve
economies of scale within the wide brief it has been given and encompassing all aspects of the
policy  on  property,  amenities/infrastructure  and  logistics.  Its  role  is  also  to  coordinate  the
approach of the institutions in their dealings with the authorities of the host country.

In this context it constitutes an active group for the exchange of information on the objectives
of  each  institution  in  terms  of  buildings,  making  it  possible  to  steal  a  march  on  market
movements.

It  is  responsible  for  the  development  of  policy  proposals  presented  to  the  Interinstitutional
Group of Secretaries-General.

Either within the latter or by developing joint concerted actions, interinstitutional cooperation
will have to be strengthened as regards, on the one hand, evaluating the long-term needs and,
on the other, searching for buildings, conducting the negotiations concerned and making the
necessary financial arrangements. Such strengthening is essential in the context of the sort of
planning  called  for  by  the  increased  requirements  of  the  institutions  within  the  budget
constraints applicable.

27

Inter-Institutionnal Infrastructure, Logistics and Internal Services Working Group – ILISWG.

17

 
                                                
6.  DRAFT DEVELOPMENT PLAN FOR THE EUROPEAN QUARTER

Presented  by  the  Belgian  authorities  on 3 October  2003,  the  plan  sets  out  a  number  of
proposals  for  the  European  Quarter,  the  major  aspects  of  which  are  cooperation  and
participation of the institutions in its development, in particular in financial terms, the creation
of a major cultural pole, desegregation aimed at breaking down the functional barriers around
the  Quarter;  mobility,  with  the  setting  of  a  new  balance  between  modes  of  travel;  the
development and renovation of public spaces; and lastly an emphasis on security.

The  Commission  welcomes  the  general  approach  of  the  draft,  some  of  whose  conclusions
coincide  with  the  recommendations  in  this  communication.  The  Commission  wishes  to  be
associated with the discussions that are to take place regarding the implementation of the draft
plan.  In  this  connection,  when  dealing  with  the  technical  aspects,  the  Commission  will  be
represented by  the  Director  of  the  OIB.  Politically  it  will  continue  to  be  represented  by  the
Member of the Commission with special responsibility for Administration. It would point out,
however,  that  in  view  of  the  extent  of  the  proposals  in  terms  of  infrastructures,  and  the
implied  consequences  of  the  financial  partnership  suggested  by  the  Belgian  authorities,  an
interinstitutional approach is needed, in particular as regards providing the suitable legal and
budgetary basis which may be required.

7.  CONCLUSIONS

The Commission is invited to:

- approve the guidelines set out in this communication and in the attached action plan;

- instruct the OIB to present, in June 2004, concrete proposals for implementing the principles
set out in this communication and to evaluate their impact in terms of the resources required,
so that they can be presented to the College in July 2004;

-  begin  implementing  the  guidelines  by  means  of  specific  targeted  measures  that  are  in
keeping with budgetary constraints, the appropriations available, the principles set out in this
communication, and the concrete proposals to be presented in June 2004.

-  to  transmit  this  communication  to  the  European  Parliament,  Council  and  the  Belgian
authorities.

18

 
8.  ANNEX I - ACTION PLAN

Subject matter

Action

Time limit

Lead/Associated

Europe's image
(Chapter 2.1)

Buildings Standards Manual
(Chapters 2.1 and 2.2)

the  mobility  of
Study 
into 
and 
staff 
the
Community 
alternative
of 
reinforcement 
modes of transport (in particular
for people of reduced mobility)

(Chapter 2.3)

Definition of an overall approach, combined  with
a discussion centred on the implementation of the
ideas put forward.

Adaptation  of  the  Manual  to  take  account  of
changes  in  technology,  and  the  principles  of  the
Communication, in particular as regards access for
the  disabled,  environmental  and  energy  standards
and desegragation.
Recruitment of a consultant and launch of a
mobility survey (with a view to drawing up an
action plan)

Under way
A  detailed  action  plan  will  be
drawn up which will be ready in
June 2004
Document being drawn up.
Consultation  of  the  departments
concerned and finalisation in the
first quarter of 2004

Department

OIB – ADMIN/
SG, GOPA, PRESS, EAC

OIB – ADMIN/
EMPL,  ENV,  TREN,
Staff representatives

- June 2004

OIB – ADMIN/
ENTR, ENV, TREN

- Discussion centred on the use of alternative
means of transport and the funding thereof; role of
the institution.

- Drawing up of a detailed report
which will be ready in April
2004

- Drawing up of a mobility plan. In this
connection, contacts with the Brussels authorities,
SNCB and STIB with a view to pinpointing
solutions and facilitating the use of those means of
transport by officials.
Drafting  of  the  Manual  in  collaboration  with  the
OIL

Housing Conditions Manual
(Chapter 2.4)

- December 2004

Finalisation of the Manual in the
first quarter of 2004

OIB – ADMIN/
OIL

19

 
Subject matter

Action

Improvement 
management and occupancy
(Chapter 2.4)

in 

space

Adapting the social amenities
(Chapter 2.4)

Development  of  an  alternative
location
(Chapter 3.3)
Renovating buildings
(Chapter 4)
Discussions  on  setting  up  SPVs
and possible EIB financing
(Chapter 4)
Closer dialogue with the Belgian
authorities
(Chapter 6)

- Staff training at OIB and
- Conclusion  of  a  framework  agreement  with  a
consultant specialising in space management

Drafting  of  a  document  on  the  state  of  play  as
regards 
the  discussions  on  social  amenities
generally  and  setting  out  implementing  measures
in  accordance  with  the  principles  adopted  by  the
Commission in  the  context  of  the  reform  and  the
Communication.
Analysis  of  the  advisability  and  possibility  of
finding  alternative  locations  in  line  with  the
principles adopted by the Commission.
Discussion  and  recommendation  regarding  the
principle, process and financing arrangements
Analysis  of  the  legal  and  financial  system  and
drawing up of recommendations.

Time limit

Third quarter of 2004

Lead/associated
Department
OIB – ADMIN

Drafting  of  an  analytical  report
which  will  be  ready  in  January
2004

OIB – ADMIN

Drafting  of  an  analytical  report
which will be ready in June 2004

OIB – ADMIN/
SG

Drafting  of  an  analytical  report
which will be ready in June 2004
Drafting  of  an  analytical  report
which will be ready in June 2004

OIB – ADMIN/
BUDG
OIB – ADMIN/
OIL, BUDG, ECFIN, SJ

- Defining a common position at interinstitutional
level

- June 2004

OIB – ADMIN/
SG

20

 
9.  ANNEX II - PROCEDURE FOR THE ISSUANCE OF PLANNING PERMITS

Planning permits are issued by the municipalities or by the Region.

A  permit  can  be  issued  by  a  municipality  only  if  the  application  complies  with  the  PRAS
(Plan Régional d’Affectation du Sol - Regional land-use plan), under which the region's land
is earmarked for office space, housing, multiple uses, etc.

Permits are  issued by the Region on  the basis  of Article 139 of the  Regional  town  planning
Order, whereby public institutions may lodge an application direct with the Region.

Once the application has been  lodged it is  the  subject of a public  enquiry which is publicly
advertised. Anyone may object to or  comment  on the project. Once the  enquiry is  over,  the
promoter presents his project before a concertation committee and any citizen who wishes his
views to be heard.

The  competent  authority  then  decides,  on  the  basis  of  the  opinion  of  the  concertation
committee, whether to grant or refuse planning permission.  If the application is lodged with
the Region, the concertation committee meeting takes place at the level of the municipalities
concerned, which deliver a non-binding opinion to the Region.

The  ad  hoc  Regional  Order  also  provides  for  time  limits  and  the  possibility  of  appeal  in
respect of each procedure.

21